r.  > 


THE  UBRARY  OF  THE 
UNIVERSITY  OF 
NORTH  CAROLINA 
AT  CHAPEL  HILL 


ENDOWED  BY  THE 
DIALECTIC  AND  PHILANTHROPIC 
SOCIETIES 


HV881 
.F63 


Nov  9 


1975 


UNIVERSITY  OF  N.C.  AT  CHAPEL  HILL 


0000374159 


This  book  is  due  at  the  LOUIS  R.  WILSON  LIBRARY  on  the 
last  date  stamped  under  "Date  Due."  If  not  on  hold  it  may  be 
renewed  by  bringing  it  to  the  library. 


DATE  OPT 
DUE 

DATE 
DUE 

 -N9V-r« 

SI.  JAf 

1  2000 

:  ,: ' 

«  JUN  2 

1  'MM 

•r1 200' 

'J|£liLD.5  4887 

— 

a  

m— 

NO 

V  1  9  1997 

2 

Is 


Digitized  by  the  Internet  Archive 
in  2014 


https://archive.org/details/careofdestitutenOOfolk_0 


The  Care  of 
Destitute,  Neglected,  and 
Delinquent  Children 


BY 


HOMER  FOLKS 

Superintendent  of  the  Children's  Aid  Society  of  Pennsylvania,  i8go-i8gs; 
Secretaiy  of  the  New  York  State  Charities  Aid  Association,  i8g^ig02; 
General  Secretary  of  the  National  Conference  of  Charities  and  Cor- 
rection, igoi~igo2 :  Commissioner  of  Public  Charities  of  the  City  of 
New  York,  igo2-  ^  ianf>,r^ 


THE  MACMILLAN  CC^  

LONDON :  MACMILLAN  &  CO.,  LTD. 
1911 


All  rights  reserved 


Copyright,  1902, 
By  the  MACMILLAN  COMPANY. 


Set  up  and  elcctrotyped.  Published  January,  1902,  Reprinted 
November,  1907;  March,  1911. 


Ncrbjoob  33re2s 
J.  S.  Gushing  Co.  —  Berwick  &  Smith  Co, 
Norwood,  Mass.,  U.S.A. 


PREFACE 

The  purpose  of  the  present  series  is  to 
bring  to  bear  on  the  practical  problems  of 
American  social  workers  a  concise  knowl- 
edge of  the  historical  evolution  through 
which  the  charities  of  the  country  have 
passed.]  The  classification  of  the  subject 
adopted  in  the  series  follows  approximately 
the  historical  order.  At  the  beginning  of 
the  nineteenth  century  and  in  the  earlier 
colonial  days  the  almshouse,  half  retributive, 
wholly  uncharitable,  stood  (aside  from  a  still 
cruder  system  of  outdoor  relief  copied  from 
the  English  poor  law)  practically  the  sole  in- 
stitutional representative  of  society's  interest 
in  its  helpless  members.  In  time,  however, 
hospitals  for  the  segregation  of  the  mentally 
defective  on  the  one  hand,  and  for  the  gen- 
eral treatment  of  the  sick  on  the  other,  began 
to  care  for  some  who  hitherto  had  been  shel- 
tered, if  at  all,  in  the  almshouse;  while  the 
elaboration  of  the  penal  system  of  the  coun- 
try effected  a  somewhat  more  complete  differ- 


vi 


PREFACE 


entiation  between  pauper  and  criminal,  and 
introduced  the  latter  as  a  special  object  of 
philanthropic  interest.  At  the  same  time 
the  needs  and  rights  of  dependent  childhood 
began  to  receive  wider  recognition  by  the 
establishment  of  institutions  and  societies  for 
children.  Later  on  in  the  century  the  home, 
which  as  a  relief  centre  antedates  the  alms- 
house, became  the  focus  of  a  new  interest, 
as  the  proper  centre  of  a  reconstructive  and 
preventive  social  effort  which  has  since  grown 
in  complexity  and  magnitude  to  overshadow 
and  to  dominate,  with  its  determination  to 
treat  causes  rather  than  results,  the  whole 
field  of  philanthropy.  In  this  progress,  from 
the  catch-all  primitive  almshouse,  through  the 
elaborate  specialization  of  palliative  charity 
which  has  characterized  the  century,  into  the 
era  of  preventive  effort  which  marks  its  close, 
there  has  been  need  of  unremitting  super- 
vision, to  conserve  in  their  true  spirit  the 
charitable  ideals  for  which  our  existing  insti- 
tutions and  systems  stand,  and  of  persistent 
educational  work,  to  arouse  and  maintain 
the  public  interest  upon  which  enduring 
progress  in  this  field  is  dependent.  The 
classification  adopted  in  the  series  is,  then, 
as  follows :  Instittctional  care  of  destitute 
adults  ;  Defectives :  the  insane^  feeble-minded, 


PREFACE 


vii 


and  epileptic;  Hospitals ^  dispensaries^  and 
nursing ;  The  treatment  of  criminals ;  Desti- 
tute^ neglected^  and  delinquent  children  ;  Care 
and  relief  of  7ieedy  families  ;  Supervisory  and 
educational  movements ;  Preventive  and  con- 
structive  philanthropy. 

The  present  volume,  in  accordance  with 
this  classification,  is  limited  to  the  considera- 
tion of  the  care  of  children  who  have  been 
removed  from  their  earlier  environment  and 
from  parental  control,  and  the  direction  of 
whose  lives  and  the  burden  of  whose  sup- 
port has  been  directly  assumed  or  provided 
for  by  public  authorities  or  private  charity. 
Many  activities  often  included  under  the 
term  "child-saving*'  will,  therefore,  not  be 
considered.  Nothing  will  be  said,  for  in- 
stance, of  movements  that  are  primarily  edu- 
cational, such  as  day  schools,  kindergartens, 
and  home  libraries.  Various  agencies  which 
help  needy  parents  to  keep  their  children 
under  their  own  care,  such  as  day  nurseries, 
are  considered  in  the  volume  in  this  series  on 
the  care  and  relief  of  needy  families.  Chil- 
dren's hospitals  are  considered  in  the  volume 
on  hospitals,  dispensaries,  and  nursing ;  insti- 
tutions for  the  training  of  mentally  defective 
children,  in  that  on  the  insane,  feeble-minded, 
and  epileptic ;  while  the  volume  on  preventive 


viii 


PREFACE 


and  constructive  philanthropy  will  touch  child 
life  at  many  points  not  mentioned  above. 

For  the  convenience  of  students  who  wish 
to  pursue  the  subject  in  greater  detail,  com- 
prehensive lists  of  authorities  have  been  given 
in  the  treatment  of  each  topic  considered. 
But  much  of  the  material  presented  in  this 
series  has  been  collected  at  first  hand,  from 
unpublished  records  of  state  boards  of  chari- 
ties, institutions,  and  societies,  from  masses 
of  legislation  as  yet  not  codified  or  systema- 
tized, and  from  the  personal  testimony  of 
eye-witnesses  and  participants  in  the  philan- 
thropic movements  of  the  century.  These 
sources  are  for  the  most  part  inaccessible, 
except  where,  as  in  the  case  of  the  present 
volume,  the  correspondence  and  papers  ac- 
cumulated in  the  preparation  of  the  work 
have  been  placed  on  file,  and  may  be  con- 
sulted by  students  of  the  subjects. 

The  editor  and  the  writers  of  the  several 
volumes  are  indebted  to  officials  and  private 
individuals  in  all  parts  of  the  country  for 
many  details  of  information  furnished  in  the 
course  of  this  correspondence,  at  a  material 
expense  of  labor  and  persistent  research. 


THE  EDITOR. 


CONTENTS 


[For  a  summary  of  the  contents  of  the  individual  chapters  the  reader 
is  referred  to  the  marginal  analysis  accompanying  the  text.] 

PAGE 

I    Conditions  Prevalent  at  the  Opening  of 

the  Nineteenth  Century     .       .       .  i 

II  Public  Care  of  Destitute  Children,  1801- 

1875  12 

III  Private  Charities  for  Destitute  Children, 

1801-1875  43 

IV  Removal  of  Children  from  Almshouses     .  72 

V  The  State  School  and  Placing-out  System  82 

VI  The  County  Children's  Home  System  .  103 
VII    The  System  of  Public  Support  in  Private 

Institutions       .       .       .       .       •  115 
VIII    The  Boarding-out  and  Placing-out  System  150 
IX    Laws  and  Societies  for  the  Rescue  of 

Neglected  Children   .       .       .  .167 

X  Private  Charities  for  Destitute  and  Neg- 

lected Children,  1875-1900        .  .179 

XI  Delinquent  Children  ....  198 
XII    Present  Tendencies  239 


ix 


THE  CARE  OF  DESTITUTE, 
NEGLECTED,  AND  DELIN- 
QUENT CHILDREN 

CHAPTER  I 

CONDITIONS  PREVALENT  AT  THE  OPENING  OF 
THE  NINETEENTH  CENTURY 

The  best  single  source  of  information  on  the  subject- 
matter  of  this  volume  is  the  report  of  the  committee  on  the 
history  of  child-saving  work,  C.  D.  Randall,  chairman,  pre= 
sented  to  the  national  conference  of  charities  and  correction, 
Chicago,  1893  (Ellis,  Boston,  out  of  print;  not  included  in 
conference  proceedings;  available  in  libraries  or  through 
members  of  the  committee).  The  proceedings  of  the  na- 
tional conference  of  charities  and  correction  (Ellis,  Boston, 
1873-  )  include  many  valuable  papers  in  addition  to 
those  specifically  mentioned  below.  The  volume  for  1893 
contains  an  index  of, the  preceding  volumes.  The  Charities 
Review  (New  York,  1891-1901)  contains  many  valuable  con- 
tributions, —  see  complete  index  in  last  volume.  Charities 
(Charity  organization  society.  New  York,  1898-  )  contains 
much  information  concerning  current  events,  —  index  of  pre- 
ceding volumes  in  volume  iv,  issue  of  May  26,  1901.  United 
States  bureau  of  education  circular  of  information  No.  6, 
1875,  relating  to  reformatory,  charitable,  and  industrial 
schools  for  the  young,  gives  statistics  and  information,  with 
brief  account  of  many  institutions,  especially  reformatories. 
See  also  proceedings  of  the  section  on  the  care  of  dependent, 

B  I 


2 


CONDITIONS  IN  1801 


neglected,  and  wayward  children,  international  congress  of 
charities,  correction,  and  philanthropy,  Chicago,  1893  (Johns 
Hopkins  press,  Baltimore) ;  Warner,  "  American  charities  " 
(Crowell,  New  York,  1894),  chapter  ix;  and  Henderson, 
"  Dependents,  defectives,  and  delinquents  "  (Heath,  Boston, 
1901),  chapter  vii.  An  alphabetical  list  of  the  authorities 
referred  to  in  the  present  volume,  together  with  numerous 
other  references  on  the  general  subject,  is  given  in  The 
Charities  Review,  volume  x,  pp.  217  ff. 

Historical  sources,  chapters  i  and  ii :  Proceedings  of  New 
York  board  of  aldermen,  board  of  assistant  aldermen,  and 
common  council,  1 800-1 873  (library,  city  hall),  containing 
reports  of  superintendent  of  almshouse  and  other  poor  law 
officials;  reports  of  almshouse  commissioner,  1845-1849; 
reports  of  board  of  governors  of  the  almshouse,  1 849-1 859; 
reports  of  commissioners  of  public  charities  and  correction, 
1859-1875.  A  good  resume  is  given  in  "An  account  of 
Bellevue  hospital,  1 736-1 893,"  by  R.  J.  Carlisle  (Society  of 
the  alumni  of  Bellevue  hospital.  New  York,  1893).  ^'^'^ 
statement  of  conditions  throughout  the  state  of  New  York 
see  report  on  relief  and  settlement  of  the  poor,  by  J.  V.  N. 
Yates,  secretary  of  state,  1824  (reprinted  by  the  state  board 
of  charities,  1900).  For  sketch  of  legislation  see  John  Cum- 
mings,  "  Poor  laws  of  Massachusetts  and  New  York  "  (No. 
4,  volume  X,  publications  of  American  economic  association, 
Macmillan,  New  York,  July,  1895).  Philadelphia:  see 
report  of  the  committee  appointed  at  a  town  meeting,  etc., 
July  23,  1827,  to  consider  the  pauper  system  of  the  city 
(Philadelphia,  1827);  history  and  reminiscences  of  the 
Philadelphia  almshouse  and  the  Philadelphia  hospital,  re- 
printed from  Philadelphia  reports  (Delve  &  Blackburn, 
Philadelphia,  1890);  "The  picture  of  Philadelphia,"  by 
James  Mease,  181 1.  Boston:  see  report  of  commission  on 
the  treatment  of  the  poor,  by  G.  S.  Hale  (Rockwell  & 
Churchill,  Boston,  1878).  Massachusetts:  see  reports  of 
state  board  of  charities,  1863-1875.  See  also  centennial 
proceedings,  Charleston  orphan  house  (Charleston,  S.C., 
1890).  Concerning  indenture  system,  see  early  statutes  of 
the  several  states. 


PREVALENT  SYSTEMS  OF  RELIEF  3 


The  opening  of  the  nineteenth  century 
found  the  EngHsh  poor-law  system  well  es- 
tablished in  most  of  the  sixteen  states  then 
comprising  the  union.  All  public  charges 
were  cared  for  by  the  local  administrative 
units,  towns  {i.e.,  townships),  counties,  or 
cities,  with  Httle  or  no  oversight  or  control 
by  the  states,  and,  then  as  now,  none  by  the 
federal  authorities.  Adults  and  children  Relief 
alike,  with  little  distinction,  were  cared  for  systems 
in  one  of  five  ways  :  t^S^t 

1.  By  outdoor  relief,  given  to  families  at  children  in 
their  homes.  ^^e  at  the 

2.  By  farming  out  to  a  number  of  families,  of  thT^^^ 
each  pauper  being  awarded,  as  a  rule,  to  the  century, 
lowest  bidder. 

3.  By  contract  with  some  individual,  usu- 
ally the  lowest  bidder,  who  became  respon- 
sible for  the  care  of  all  the  paupers  of  a 
given  locality. 

4.  By  support  in  an  almshouse  directly 
under  the  control  of  public  authorities. 

5.  By  indenture. 

The  farming-out  and  contract  systems  had 
comparatively  little  application  so  far  as  chil- 
dren were  concerned.  Indenture,  on  the 
other  hand,  although  especially  applicable  to 
children,  was,  it  is  curious  to  note,  also  used 
as  a  means  of  caring  for  adults,  the  statutes 


4 


CONDITIONS  IN  1801 


of  several  states  providing,  at  the  opening 
of  the  century,  that  idle  or  vagrant  persons 
might  be  indentured  to  respectable  citizens 
for  a  period  of  one  year. 

-In  tracing  the  early  history  of  the  public 
care  of  pauper  children  it  will  be  necessary 
to  follow  for  some  time  the  systems  of  out- 
Outdoor     door  relief  and  almshouse  care.  Outdoor 
relief  the    relief  was  the  method  by  which  the  larger 
nant^"^^     number  of  pauper  children,  as  well  as  adults, 
method.     were  cared  for  at  the  beginning  of  the  cen- 
tury.   It  had  already  passed  (in  1784  in  New 
York)  from  the  control  of  the  church  authori- 
ties to  that  of  the  overseers  of  the  poor.  The 
reports  made  at  a  little  later  date  by  com- 
petent authorities  in  Boston  and  New  York 
indicate  that  public  outdoor  relief  exerted 
the  same  evil  influences  upon  children  at 
the  opening  of  the  century  as  it  does  at  the 
century's  close  in  most  of  those  localities  in 
which  it  still  prevails. 

Almshouses  were  first  built  by  the  large 
cities.  Philadelphia,  the  largest  city  in  the 
Almshouse  country  at  the  opening  of  the  century  (popu- 
fineV°^°  lation,  70,287),  was  then  occupying  its  second 
mostly  to  public  almshouse,  opened  in  1767  and  located 
the  large  in  the  area  bounded  by  Tenth,  Eleventh, 
cities,  Spruce,  and  Pine  streets.  Both  adults  and 
children  were  here  cared  for. 


ALMSHOUSE  CARE 


New  York,  the  second  city  in  the  union 
(population,  60,489),  had  just  abandoned  its 
original  almshouse,  and  had  removed  its 
paupers  to  a  much  larger  building  located 
in  the  present  city  hall  park,  and  on  the 
site  of  the  present  county  courthouse.  Here 
were  numbers  of  children  mingled  with  the 
many  other  elements  of  almshouse  popula- 
tion that  in  large  cities  have  since  been  seg- 
regated into  special  classes.  The  almshouse, 
while  under  the  immediate  management  of  a 
superintendent,  was  controlled  by  the  com- 
mon council,  which  held  its  meetings  there 
and  inspected  the  institution  once  in  three 
months.  On  October  6,  1800,  a  committee 
of  the  council,  appointed  to  frame  a  new 
set  of  rules  for  the  management  of  the  alms- 
house, reported  as  among  the  objects  to  be 
attained  the  following : 

"The  children  of  the  house  should  be 
under  the  government  of  capable  matrons. 
.  .  .  They  should  be  uniformed,  housed, 
and  lodged  in  separate  departments,  accord- 
ing to  their  different  sexes;  they  should  be 
kept  as  much  as  possible  from  the  other 
paupers,  habituated  to  decency,  cleanliness, 
and  order,  and  carefully  instructed  in  read- 
ing, writing,  and  arithmetic.  The  girls  should 
also  be  taught  to  sew  and  knit. 


6 


CONDITIONS  IN  1801 


"  When  the  children  arrive  at  proper  ages, 
great  care  should  be  taken  to  furnish  them 
with  suitable  places,  that  they  may  be  in- 
structed in  some  useful  trade  or  occupation." 

The  exact  number  of  children  in  the  New- 
York  city  almshouse  in  1801  is  not  available, 
but  on  August  14,  1809,  they  numbered 
226,  —  125  boys  and  loi  girls.  It  is  likely 
that  the  city  also  boarded  a  number  of  infants 
in  families  at  this  time.  The  rules  estab- 
lished by  the  common  council  in  1800  pro- 
vided that  **Care  shall  be  taken  to  provide 
healthy  and  proper  nurses  for  such  of  the 
children  as  may  require  them ;  and  where 
this  can  be  done  out  of  the  house,  it  shall  be 
preferred."  Somewhat  later,  on  April  i, 
1823,  we  learn  that  there  were  129  infants 
placed  out  at  nurse,"  and  paid  for  by  the 
city  at  the  rate  of      per  week. 

Baltimore,  the  third  city  in  the  union 
(population,  26,614),  probably  cared  for  its 
destitute  children  in  the  Baltimore  county 
almshouse,  the  city  having  no  charitable  in- 
stitution under  its  immediate  direction  at  that 
time. 

Boston,  the  fourth  city  (population,  24,027), 
erected  its  second  almshouse,  for  both  chil- 
dren and  adults,  in  1800.  Outdoor  relief  was 
also  given  freely,  as  was  the  case  very  gen- 


ALMSHOUSE  CARE 


7 


erally  throughout  New  England.  The  pro- 
portion of  "unsettled,"  or  state,  paupers  was 
increasing,  but  they  were  cared  for  by  the 
cities  and  towns,  which  were  reimbursed  by 
the  state. 

There  were  at  this  time  no  other  cities  in 
the  United  States  having  a  population  above 
ten  thousand.    In  most  of  Pennsylvania,  and  but  county 
generally  in  the  southern  states,  the  county  ^^^ggg^j^ 
system  of  poor  relief  prevailed,  and  many  rural  dis- 
counties  had  erected  almshouses.    In  Mary-  trictsalso 
land  the  county  almshouse  system  was  es-  thrsouth.^ 
tablished  by  law  in  1768.    In  Delaware  each 
county  had  an  almshouse  by  1823. 

So  far  as  known,  the  only  public  institu- 
tion for  children,  not  forming  part  of  an 
almshouse,  existing  in  1801  was  the  Charles- 
ton, S.C.,  orphan  house.  The  charter  of 
Charleston,  granted  at  the  close  of  the  revo-  Only  one 
lutionary  war,  imposed  upon  the  city  the  duty  Public  m- 

r  r  .  V.  Stitution 

of  providmg  for  poor  orphans.  For  some  expressly 
years  the  children  were  boarded  in  families,  for  chii- 
but  in  1790  a  resolution  was  adopted  by  the 
city  council  in  favor  of  the  establishment  of 
an  orphan  house.  At  first  a  building  was 
hired  for  this  purpose,  but  a  structure  erected 
by  the  city  was  opened  October  18,  1794,  to 
receive  the  115  orphans  who  were  city 
charges.    The  records  of  the  institution  tell 


dren  then 
on  record. 


8 


CONDITIONS  IN  1801 


of  an  appreciative  visit  to  it  by  President 
Washington. 

The  plan  of  indenturing  or  apprenticing 
destitute  children,  also  taken  from  the  Eng- 
indenture  jigh  poor  law,  was  in  very  general  use  at  the 
us^^^^^*^  opening  of  the  century.  It  had  been  care- 
fully regulated  by  law  in  Massachusetts  in 
1703,  in  New  York  in  1754,  in  Pennsyl- 
vania in  1 77 1,  and  in  Maryland  in  1797,  and 
doubtless  found  legal  recognition  in  still 
earlier  statutes  in  these  and  other  states.  The 
rules  established  by  the  common  council  for 
the  government  of  the  New  York  almshouse 
in  1800  provided  that  **When  any  of  the 
children  arrive  at  proper  ages  they  shall  be 
bound  out  to  suitable  trades  or  occupations, 
and  provision  shall  be  made  in  their  indenture 
for  their  due  maintenance  and  instruction.  If 
any  of  those  who  shall  have  been  so  bound 
out  shall  be  injured  or  ill-treated,  the  superin- 
tendent shall  consider  it  as  his  duty  to  pro- 
cure them  redress.  They  are  to  be  considered 
in  every  respect  as  the  children  of  the  public, 
under  his  care.*'  In  Virginia  overseers  of 
the  poor  were  required  by  law  to  make 
monthly  reports,  to  the  county  courts,  of  the 
poor  orphans  and  other  children  bound  out. 

The  eighteenth  century  had  seen  the  be- 
ginnings of  a  remarkable  development  of  pri- 


PRIVATE  CHARITIES 


9 


vate  charities  for  the  care  of  children.  The 
first  orphan  asylum  in  the  country  was  that 
attached  to  the  Ursuline  convent  in  New 
Orleans.    This  convent  was  established  in  A  few 
1727,  under  the  auspices  of  Louis  5(V  of  ^^^Jj.^[igg 
France.    It  maintained  a  day  school  and  a  for  chil- 
hospital,  and  also  received,  during  the  first  ^^^^ 

1  T  T  .     .  r  been  es- 

year,  an  orphan  rescued  by  a  missionary  from  tablished 
a  dissolute  family.  The  frightful  massacre 
by  the  Natchez  Indians  in  1729  left  many 
orphans  in  and  near  New  Orleans,  and  the 
convent  established  an  asylum  for  their  care. 
In  1824  the  convent  was  removed  to  a  coun- 
try site,  and  owing  to  the  growth  of  other 
asylums  provision  was  made  for  the  care  of 
but  thirty  orphans,  which  number  the  convent 
still  maintains. 

The  Bethesda  orphan  house  was  established 
in  Savannah  in  1738,  five  years  after  the 
colony  was  settled,  by  the  celebrated  preacher, 
George  Whitefield,  to  whom,  he  states,  the 
plan  was  suggested  by  Charles  Wesley  and 
Governor  Oglethorpe-  This  was  founded  by 
funds  collected  by  Whitefield  in  England. 
In  1797  the  society  for  the  relief  of  poor 
widows  with  small  children  was  organized  in 
New  York  city.  This  society  did  not  estab- 
lish an  institution,  but  visited  and  gave  relief 
to  widows  and  children  in  their  homes, — =a 


10 


CONDITIONS  IN  1801 


beneficent  work  which  it  continues  to  the 
present.  In  1798  an  association  was  organ- 
ized by  a  Roman  catholic  priest  in  Philadel- 
phia to  care  for  the  orphans  of  catholics  who 
died  of  yellow  fever  during  that  year.  Sub- 
sequently this  institution  became  St.  Joseph's 
female  orphan  asylum.  In  1799  an  asylum 
for  the  care  and  education  of  destitute  girls 
was  established  by  St.  Paul's  church  in  Balti- 
more, and  in  1800  the  Boston  female  asylum 
for  indigent  orphan  girls  was  incorporated. 

As  to  destitute  children,  the  situation  at  the 
opening  of  the  century  may  be  summed  up 
in  the  statement  that  children  who  were  pub- 
lic charges  were,  as  a  rule,  cared  for  with 
adult  paupers  by  the  contract  system,  or  in 
almshouses,  or  by  outdoor  relief,  or  were 
bound  out  as  apprentices;  that  Charleston 
had  a  municipal  orphan  asylum ;  and  that 
private  institutions  for  children  had  been 
established  in  New  Orleans,  Savannah,  New 
York,  Philadelphia,  Baltimore,  and  Boston. 

As  to  neglected  children,  we  finci  in  the 
statutes  of  the  time  but  few  provisions  for 
Neglected  their  rescue  and  care.    As  early  as  1735  in 
children     goston  children  whose  parents  were  unable 

practically  .  .     /      ,  . 

over-        or  neglected  to  provide  for  their  support  and 
looked.      education  might  be  bound  out  by  the  over- 
seers of  the  poor.    The  lawts  of  Maryland 


NEGLECTED  CHILDREN 


II 


authorized  in  1797  the  binding  out  of  the 
children  of  beggars.  The  class  of  children 
who  are  now  forcibly  removed  from  the  con- 
trol of  unfit  parents  apparently  remained 
with  their  famiUes,  as  a  rule,  until  the  latter 
became  destitute,  when  the  children  were 
cared  for  as  pauper  children,  or  until  the 
fruits  of  neglect  were  reaped,  and  the  chil- 
dren, convicted  of  offences,  were  sent  to  jails 
and  penitentiaries  along  with  older  offenders. 
In  the  penitentiary  of  New  York  city,  on 
April  I,  1823,  we  are  informed,  there  were 
thirty-two  boys. 


CHAPTER  II 


PUBLIC    CARE    OF   DESTITUTE  CHILDREN, 
180I-1875 

Agencies  for  the  care  of  destitute  children 
have  sprung  from  two  sources,  —  from  public 
bodies  acting  in  behalf  of  the  whole  commu- 
nity, and  from  private  benevolence  exercised 
through  individual  or  associated  effort.  The 
Public  term  public,  as  used  thxoughout  this  volume 
care^de-  connection  with  institutions  or  agencies  for 
the  care  of  children,  indicates  such  as  are 
under  the  direct  control  of  governmental  bod- 
ies and  are  supported  from  public  funds.  The 
term  private  indicates  all  other  agencies, 
whether  managed  by  individuals  or  by  socie- 
ties, churches,  or  corporations. 

The  pubUc  care  of  children  during  the  first 
three  quarters  of  the  century  follows,  in  the 
main,  the  changes  in  the  care  of  adult  paupers, 
though  in  the  larger  cities  provision  was  made 
Its  evolu-    for  them  separate  from  the  adults,  but  under 
tion  mainly  ^.^e  same  administrative  control.    The  move- 
the^alrns-    n^cnt  as  a  whole  was  toward  an  increased  use 
house.       of  almshouses  and  a  relative  diminution  of 

12 


NEW  YORK  CITY 


13 


outdoor  relief.  The  farming-out  and  contract 
systems  passed  largely  into  disuse,  and  in 
some  states  were  forbidden  by  law. 

As  it  is  fairly  indicative  of  the  manner  in 
which  most  municipal  institutions  for  children  The  typi- 
have  been  conducted,  the  history  of  the  care  experi- 

ence  of 

of  children  by  the  city  of  New  York  will  be  York 
considered  at  some  length.     That  of  other  city, 
important   municipalities  will   follow  more 
briefly. 

The  common  council  of  New  York,  whose 
minutes  during  the  first  three  quarters  of  the 
century  afford  many  illustrations  of  alder- 
manic  wisdom  as  applied  to  child-saving, 
appointed  January  7,  1805,  a  committee  to 
consider  and  report  upon  the  expediency  of 
granting  the  application  of  the  commissioners 
of  the  almshouse  for  the  establishment  at  the 
almshouse  of  a  school  for  the  pauper  chil- 
dren. Whether  the  school  was  established 
or  not  we  do  not  know.  In  18 16  the  children 
were  removed,  with  the  almshouse  paupers, 
the  hospital,  and  the  prison  department,  to 
the  new  Bellevue  establishment  at  Twenty- 
sixth  street  and  East  river,  —  the  main  build- 
ing of  which  is  now  used  as  Bellevue  hospital. 
On  April  i,  1823,  there  were  553  children  in 
the  Bellevue  almshouse,  and  the  number  of 
children  in  families  aided  by  public  outdoor 


14 


PUBLIC  CARE  UP  TO  1875 


relief  was  estimated  at  4000.  Here,  at  least, 
a  school  was  provided,  for  a  writer  in  1826 
describing  the  almshouse  establishment  says. 

One  of  the  pubUc  or  free  schools  (No.  6  ), 
conducted  upon  the  monitorial  system  and 
containing  300  scholars,  is  in  appropriate 
rooms  for  males  and  females.  The  school 
is  well  conducted,  and  the  teachers  are  under 
the  direction  of  the  public  school  committee 
of  the  city.  The  children  are  orderly,  clean, 
decently  clothed,  and  in  good  health,"  —  an 
optimistic  report,  not  altogether  sustained  by 
later  developments.     The  writer  continues, 

There  are  two  brick  buildings,  one  at  each 
end  of  the  factory,  seventy-five  by  twenty-five 
feet,  containing  six  rooms  each,  which  were 
formerly  occupied  as  hospitals,  one  for  men 
and  one  for  women,  who  have  been  removed 
to  the  new  hospital,  and  these  rooms  are  now 
used  for  children  and  their  nurses,"  The 
almshouse  census  in  1828  showed  that  the 
number  of  juvenile  inmates  had  increased 
during  the  preceding  five  years  from  553  to 
667. 

A  severe  outbreak  of  ophthalmia  in  1831 
proved  to  be  the  beginning  of  the  end  of  the 
use  of  the  Bellevue  establishment  as  a  home 
for  pauper  children.  On  May  23,  183 1,  the 
board  of  assistant  aldermen  directed  the  com- 


NEW  YORK  CITY 


mittee  on  charity  and  the  almshouse  to  report  Ravages 
at  the  next  meeting  the  present  condition  of 
the  almshouse  children  afflicted  with  ophthal-  public  at- 
mia,  and  the  cause.    A  month  later  the  com-  tention  to 
mon  council  authorized  the  committee  to  ^^0^^^°^^^' 
employ  a  physician  to  assist  the  resident  children  in 
physician  in  the  treatment  of  these  children. 
He  was  to  receive  $3  for  each  day  on  which 
he  visited  them. 

Just  at  this  time  the  city  purchased  Black- 
well's  island,  and  also  three  farms  in  Queens 
county,  located  on  the  East  river  opposite 
Blackwell's  island  and  known  as  the  Long 
Island  farms.  A  portion  of  the  children 
having  ophthalmia  were  removed  from  Belle- 
vue  to  the  island.  In  July,  the  commissioners 
of  the  almshouse  were  authorized  to  remove 
the  convalescent  children  from  here  to  the 
Long  Island  farms,  and  to  transfer  from  the 
almshouse  to  BlackwelFs  island  the  residue 
of  the  children  afflicted  with  ophthalmia.  On 
July  22,  183 1,  a  committee  of  the  board  of 
assistant  aldermen  reported  that  they  had 
visited  the  children  on  the  island,  and  found 
that  "their  general  health  was  manifestly 
changed  from  a  sickly  hue  to  a  robust  ap- 
pearance.'' 

A  little  later,  on  December  5,  183 1,  we 
find  the  following  resolution  adopted  by  the 


l6  PUBLIC  CARE  UP  TO  1875 

assistant  aldermen  :  Whereas,  several  of  the 
children  at  the  Alms  House  having  been 
afflicted  by  the  disease  termed  Ophtalma, 
therefore,  Resolved,  that  it  be  referred  to 
the  Committee  of  the  Alms  House  to  ascer- 
tain and  report  to  this  Board  whether  they 
can  be  taught  any  and  what  useful  employ- 
ments that  may  render  them  less  burthen- 
some  to  themselves,  and  what  will  be  the 
probable  expense." 

In  June,  1832,  the  common  council  re- 
ceived a  communication  from  the  almshouse 
commissioners,  recommending  that  the  chil- 
dren in  that  establishment  be  transferred  to 
the  Long  Island  farms,  stating  that  it  would 
be  necessary  to  erect  temporary  buildings  at 
each  of  the  three  farms,  and  stating  also  that 
120  of  the  almshouse  children  had  ophthal- 
and  they  mia.  This  recommendation  was  acted  upon, 
were  re-  ^j^^  Commissioners,  in  a  letter  of 

moved  to 

Long  resignation  dated  July  i,  1833,  stated  that 
Island,  most  of  the  children  had  been  transferred 
from  Bellevue  to  the  Long  Island  farms, 
which  were  originally  intended  "  for  the 
special  benefit- of  this  unoffending, -interest- 
ing, and  numerous  class  of  paupers."  The 
commissioner  goes  on  to  state  that  '*soon 
after  the  purchase  of  the  farms,  in  1831,  a 
man  was  placed  upon  them,  ostensibly  to  cut 


NEW  YORK  CITY 


17 


wood  in  winter,  his  large  family  to  be  sup- 
ported, and  he  to  have  $2  per  day  besides." 
The  commissioner  complains  that,  although 
the  man  is  not  qualified  to  superintend  either 
the  farms  or  the  children,  he  still  remains 
in  charge  of  both.  As  a  consequence,  he 
says,  "118  boys  dined  last  Saturday  upon 
dry,  hard,  boiled  salt  beef,  with  dry  bread, 
but  no  vegetables.'*  He  closes  :  I  would 
anxiously  but  respectfully  recommend  to  your 
honorable  bodies  that  you  do  consider  the 
case  of  these  poor  children."  From  this 
time  all  of  the  children,  except  perhaps  those 
needing  hospital  care,  and  the  infants  who 
were  boarded  out,  were  kept  at  the  Long 
Island  farms.  On  September  i,  1834,  they 
numbered  680,  and  130  were  at  nurse  in  the 
city.  The  numbers  increased,  for  the  com- 
missioners at  this  time  announced  the  policy 
of  readily  receiving  all  children  who  belong  where  all 
to  the  city  and  are  destitute,  and  when  once  ^f^m^^^ 

children  of 

Within  the  establishment  keeping  them  under  the  city 
all  usual  circumstances  until  they  are  taught  were  freely 
to  read  and  write."  They  adopted  a  rule  that 
girls  should  not  be  bound  out  under  the  age 
of  ten  years,  nor  boys  under  the  age  of 
twelve,  stating  that  during  the  previous  year 
eighty  children  under  those  ages  had  been 
indentured.    A  question  that  is  still  trouble- 


1 8  PUBLIC  CARE  UP  TO  1875 


The  diffi- 


some  to  all  institutions  caring  for  children 
was  thus  stated  in  the  report  of  the  alms- 
house commissioners  for  1834: 

"  The  commissioners  can  bind  the  children 
out  the  day  they  enter  the  almshouse,  and  the 
parents  lose  all  control  over  them;  but  if 
cuityTf"     they  remain  in  the  almshouse  unbound,  the 
retaining    parents  or  guardians  can  probably  demand 

d^ren  Un'^'  ^^^^  ^^^^  ^^^^  ^^^^ 

fairly  once  abandoned  by  their  parents  or  friends 
schooled,  to  the  public,  and  put  in  the  almshouse  school, 
it  should  be  optional  with  the  commissioners 
to  deliver  them  back  to  the  parents  and 
friends  or  not.  It  will  be  readily  perceived 
that  there  are  many  cases  in  which  the  taking 
of  the  children  from  school  and  delivering 
them  back  to  intemperate  parents,  perhaps 
criminal  ones,  would  be  the  certain  destruc- 
tion of  the  little  education  obtained,  and  to 
the  welfare  and  morals  of  the  children.'*  The 
report  goes  on  to  state  that  the  Long  Island 
farms  are,  to  a  considerable  extent,  in  an 
uncultivated  state,  but  that  they  believe  the 
citizens  will  not  regret  the  purchase  when 
they  consider  "that  the  previous  abode  of 
these  children  was  within  high  walls,  contain- 
ing a  state  prison,  county  prison,  a  bridewell, 
and  an  almshouse  establishment." 

Almost  immediately,  however,  an  agitation 


NEW  YORK  CITY 


19 


was  begun  for  the  sale  of  the  Long  Island  The  Long 
farms  and  the  removal  of  the  children  to 
Randall's  island,  which  was  purchased  by  the  ment 
city  in  1835.    In  the  same  year  a  committee  proving 
of  the  board  of  aldermen  reported  in  favor  of  ^''^''/^  ^'^^^^^ 
moving  both  the  children's  institutions  and 
the  almshouse  to  Randall's  island.  Nothing 
was  effected  for  some  years,  although  the 
subject  was  reported  upon  nearly  every  year. 

The  message  of  the  mayor,  May,  1840, 
states  that  there  were  900  children  in  the 
schools  on  the  Long  Island  farms,  and  that 
349  children  had  been  bound  out  during  the 
preceding  year.    In  1843  plans  were  adopted 
by  the  almshouse  commissioners  for  the  re- 
moval of  both  the  almshouse  and  the  children's 
institutions  to  Blackwell's  island.  Buildings 
were  to  be  erected  just  north  of  the  present 
site  of  the  almshouse,  to  accommodate  1000 
children.    This  plan  was  not  carried  into  aftermuch 
effect,  and  in  1845  the  Long  Island  farms  dekyand 
had  been  sold,  and  a  large  building  was  sojourn 
erected  on  Randall's  island  for  the  pauper  with  the 
children.    This,  however,  burned  before  the  ^^^^^  P^^" 
children  were  removed  to  it,  and  the  ques-  Black-" 
tion  again  arose  as  to  where  they  should  weU's 
be  located.    It  was  finally  decided  to  erect 
a  series  of  detached  buildings  on  Randall's 
island.     Early  in  1847  the  large  building 


20 


PUBLIC  CARE  UP  TO  1875 


now  occupied  by  the  almshouse  for  women 
on  Blackwell's  island  was  completed,  and  the 
children  were  removed  thither,  "owing  to  the 
dilapidation  of  the  old  and  wretched  Long 
Island  farms  hovels."  Here  they  remained 
a  year,  during  which  time  ten  brick  buildings 
were  erected  for  them  on  Randall's  island. 
The  commissioner  again  stated  it  to  be  his 
intention  to  retain  the  children,  before  in- 
denturing them,  until  they  had  received  a 
better  education.  He  thought  girls  should 
not  leave  the  institution  until  they  were  thir- 
teen years,  and  boys,  fifteen  years  of  age. 
He  also  condemned  unsparingly  the  custom 
of  detailing  adult  paupers,  vagrants,  and  even 
criminals  from  the  city  institutions  to  care  for 
the  children.  Proper  and  efficient  nurses 
should  be  hired,  whose  characters  are  a  guar- 
antee for  the  propriety  of  their  actions.''  On 
thechil-  April  15,  1848,  the  children  were  removed  to 
dren  were         Randall's  island  institutions,  and  the  com- 

removedto       .    .  .11  i  ./xtt 

Randall's  niissioner  trmmphantly  reported,  *  We  can 
island,  certainly  now,  after  having  been  incommoded 
with  miserable  and  unsightly  hovels  for  many 
years,  boast  with  a  becoming  pride  of  possess- 
ing the  most  complete,  convenient,  and  ele- 
gant establishment  for  the  rearing  of  young 
orphans  of  the  city's  care  known  in  the 
world;  —  here  true  humanity  can  fulfill  its 


NEW  YORK  CITY 


21 


ennobling  mission/'  There  remained  in  the 
"Randall's  island  institutions,  December  31, 
1848,  a  total  of  1054  children.  There  were 
also  165  children  at  nurse.  During  1849, 
514  children  were  cared  for  at  nurse;  of  Children 
them  fifty  were  adopted,  ninety-seven  were  boarded 
restored  to  friends,  and  280  died.  This  was  ^urse. 
a  cholera  year,  and,  commenting  on  the  death 
rate,  the  clerk  of  the  outdoor  poor  depart- 
ment remarks  that  "The  mortality  among 
the  children  at  nurse  for  the  almshouse  was 
awfully  fatal  and  extensive."  Of  the  109 
children  boarded  out  at  the  close  of  1849, 
"about  thirty-six"  were  reported  as  illegiti- 
mate children,  mostly  boarded  with  their 
mothers,  twenty-seven  as  foundlings,  and 
forty-six  as  the  children  of  destitute  parents. 
At  this  time  the  almshouse  was  under  the 
control  of  one  commissioner.  Among  other 
improvements,  he  employed  an  agent  to  visit 
the  children  at  nurse,  and  also  those  inden- 
tured. The  report  for  1848  contains  inter- 
esting statements  concerning  many  of  the 

children  visited,  thus,. —  "Bridget  ,  with 

Michael   ,  349  Water  St.,  about  seven 

years ;  is  now  fourteen  years  old ;  a  very 
industrious  girl ;  reads,  writes,  and  ciphers." 

"  Mary  ,  with  William  ,  on  27th  St., 

for  two  and  one  half  years ;  is  now  fourteen 


22 


PUBLIC  CARE  UP  TO  1875 


Policy  of 
indenture 
favored. 


Children 
over  two 
removed 
from  pub- 
lic institu- 
tions, 
1875. 


years  old ;  education  neglected,  —  promised 

to  attend  to  it."       James  ,  with   , 

205  Christie  St.,  for  two  years  and  one  half; 
is  nine  years  old ;  a  very  good  boy." 

In  1849  a  board  of  governors  succeeded 
the  almshouse  commissioner,  and  to  some  ex- 
tent reversed  his  policy.  They  were  in  favor 
of  placing  children  in  families,  and  believed 
that  legislation  should  be  had  enabling  them 
to  indenture  children  in  other  states.  They 
stated  that,  while  they  had  been  able  to  supply 
most  of  the  demand  for  indenturing,  no  girls 
"  capable  of  being  put  out  remained,"  although 
there  were  still  a  number  of  boys  of  suitable 
age  and  size. 

From  1849  the  history  of  the  Randairs 
island  nurseries  is  uneventful,  until  the  legis- 
lation of  1875,  which  forbade  the  city  to  re- 
tain in  its  institutions  healthy  children  over 
two  years  of  age.  The  early  reports  of  the 
state  board  of  charities  and  of  the  state  chari- 
ties aid  association  contain  many  unsparing 
criticisms  of  the  pitiful  condition  of  the  chil- 
dren, cared  for  in  part  by  female  prisoners 
from  the  workhouse. 

The  boarding  out  of  infants  continued  un- 
til some  date  between  1863  and  1866,  when 
they  were  all  returned  to  the  almshouse.  In 
1866  an  infant's  department  of  the  almshouse 


PHILADELPHIA 


23 


was  created,  where,  the  report  states,  the 

"  foundling  infants,  hitherto  distributed  among 

the  wards  of  the  almshouse,  and  consigned  Varying 

to  the  mercies  of  reluctant  attendants,  have  P°^^^y^^' 

'  gardmg 

been  gathered  under  the  care  of  a  matron  infants, 
and  kind  and  attentive  nurses."  This  was  at 
first  called  the  infants'  bureau,  and  in  1867 
the  erection  of  a  large  new  building  for  its 
use  on  Randall's  island  was  begun.  During 
the  winter  of  1867-8,  owing  to  the  overcrowd- 
ing of  the  almshouse,  the  infants'  hospital  was 
removed  to  the  newly  erected  building  intended 
for  an  inebriate  asylum,  where  it  remained 
until  August,  1869,  when  it  was  removed  to 
its  present  building  on  Randall's  island.  The 
death  rate  continued  high,  however,  and  the 
boarding  out  in  Westchester  county  of  the 
foundling  and  motherless  babies  was  begun 
in  1 87 1  or  1872.  Boarding  out  was  discon- 
tinued in  1890,  but  was  renewed  on  a  small 
scale  in  1898,  with  the  cooperation  of  two  pri- 
vate charities.  It  was  so  successful  in  reduc- 
ing the  death  rate  that  in  1900  and  1901  it 
was  extended  to  include  all  foundlings  coming 
directly  under  the  care  of  the  city  of  New 
York. 

Philadelphia  continued  to  occupy  the  alms-  Philadel- 
house  located  at  Tenth  and  Pine  streets  until  P^^^'^ 
about  1835.        1810  the  average  number  of  P^"^"^^' 


24 


PUBLIC  CARE  UP  TO  1875 


children  supported  in  the  institution  was  171, 
and  during  the  same  year  an  average  of  212 
children  were  supported  at  nurse  out  of  the 
house." 

In  1820,  a  long  time  before  New  York  or 
Boston  made  separate  provision  for  pauper 
children,  the  almshouse  managers  established 
a  children's  asylum,  on  Fifth  street  near  Pine, 
and  we  are  told  by  a  writer  in  1830  that 
"  The  good  effects  of  this  change  upon  the 
Children  health  and  morals  of  the  children  are  very 
separated    perceptible/'    The  rules  and  res^ulations  for 

from  pau-  ,  ^ 

per  adults,  the  internal  government  of  the  almshouse, 
1820.  adopted  December  21,  1821,  contain  elabo- 
rate provisions  in  regard  to  the  children  in 
the  asylum,  and  particularly  in  regard  to 
the  conduct  of  the  school  in  the  institution. 
Among  other  interesting  provisions  are  the 
following  :  "  The  teacher  shall  use  lenity  and 
kindness  to  the  boys  under  his  care,  and  in 
no  case  inflict  corporal  punishment.  .  .  .  The 
punishment  for  bad  behavior  shall  be  bread 
and  water,  and  solitary  confinement,  if  neces- 
sary, for  an  hour  or  two.  .  .  .  The  books 
recommended  are  Pierce's  *  Spelling  book,' 
Mrs.  Barbauld's  '  Easy  lessons,'  and  the  New 
Testament.  ...  It  shall  be  the  duty  of  the 
teacher  to  attend  with  his  scholars  at  divine 
service  when  in  the  house,  and  keep  them  as  1 


PHILADELPHIA 


25 


much  as  possible  silent  and  in  order,  and 
place  them  by  themselves/' 

The  report  of  a  committee  appointed  at  a 
town  meeting  of  the  citizens  of  the  city  and 
county  of   Philadelphia,  July  23,  1827,  to 
consider  the  subject  of  the  pauper  system 
of  the  city  and  districts,  and  to  report  rem- 
edies for  its  defects,  throws  much  light  on 
the   operations  of  the   children's  asylum. 
The  number  of  children  admitted  from  the  Statistics 
opening  of  the  asylum  in  April,  1820,  to  ^^n^^^^^ 
May  22,  1826,  was,  boys  661,  girls  328,  total  asylum. 
989.    The  disposition  made  of  them  was  as 
follows : 


Boys 

Girls 

Total 

no 

72 

182 

Died  

34 

17 

29 

16 

45 

25 

4 

29 

Returned  to  parents  and  relatives  . 

334 

188 

522 

II 

4 

15 

In  the  asylum,  1826  .... 

118 

27 

145 

661 

328 

989 

The  average  age  of  those  admitted  had 
been  about  four  and  one  half  years ;  the 
average  stay  in  the  asylum  of  those  who 
were  returned  to  parents  and  relatives  was 


26  PUBLIC  CARE  UP  TO  1875 


little  over  six  months,  and  of  those  who  ran 
away  about  three  months;  the  average  age 
of  those  bound  out  had  been  seven  years, 
and  they  had  been  in  the  asylum  an  average 
of  two  years  and  four  months.  The  average 
number  in  the  asylum  during  the  preced- 
ing year  was  1 54,  and  the  average  per  capita 
cost  per  week  91^  cents.  The  total  cost  of 
the  asylum  from  1820  to  1826,  not  including 
cost  of  house,  lot,  and  a  new  additional 
building,  had  been  ^44,508.  In  addition  to 
the  children  in  the  asylum,  there  remained 
in  the  almshouse  proper,  on  September  i, 
1827,  only  fourteen  children  under  five  years 
of  age,  three  between  five  and  ten,  and  six- 
teen between  ten  and  twenty.  There  were 
also  thirteen  children  under  ten  in  the  alms- 
house infirmary. 

Among  the  defects  enumerated  by  the 
committee  was  the  lack  of  authority  in  the 
board  of  guardians  to  bind  out  children  who 
became  public  charges,  without  the  consen^: 
of  the  parents.  The  report  stated,  "The 
Children     children  of  paupers  are  received  into  the  asy-; 

withdrawn  J^J^^  nurscd  when  necessary,  fed  and  comfort- 
by  parents     ,  ,      ,    ,     -,  , 

too  easily,  ^^ly  clothed  at  a  very  great  expense  to  the 
public ;  as  soon  as  they  arrive  at  a  suitable 
age  to  be  bound  out  and  proper  places  are 
provided  for  them,  they  are  frequently  with- 


PHILADELPHIA 


27 


drawn  by  their  parents  and  return  to  the 
haunts  of  poverty  and  vice  from  which  they 
had  been  taken,  and  thus  the  benevolent 
purposes  of  the  institution  are  defeated  and 
the  public  funds  uselessly  expended/'  The 
committee  recommended  that  the  buildings 
occupied  as  an  almshouse  and  children's 
asylum  be  sold  and  new  buildings  erected ; 
that  the  children's  asylum  be  so  constructed 
as  to  guard  against  the  diseases  to  which  the 
inmates  of  the  present  establishment  are 
subject,"  and  that  the  board  of  guardians 
be  given  power  to  bind  out  children  who 
become  public  charges  without  the  consent 
of  parents,  unless  the  expenses  incurred  for 
their  support  be  defrayed  and  a  security  be 
given  that  they  will  not  again  become  charge- 
able for  two  years. 

The  recommendation  of  the  committee  as 
to  the  sale  of  the  buildings  was  carried  into 
effect,  but  unfortunately  the  lesson  learned  The  sepa« 
fifteen  years  earlier  was  forgotten  and,  just  ^^g^j^fg^^^" 
as  New  York  was  beginning  to  separate  her  asylum 
children  from  adult  paupers,  Philadelphia  sold,  and 
took  a  backward   step,  and  brought  her  aglinmin- 
children  under  the  same  roof  with  the  adults,  gled  with 
In  1835  the  children's  asylum  and  the  alms-  pj^f  fg^^""" 
house  were  sold,  and  both  children  and  adults 
were  removed  to  the  new  buildings  located  in 


PUBLIC  CARE  UP  TO  1875 


the  town  of  Blockley  (now  part  of  Philadel- 
phia), and  known  henceforth  as  the  Blockley 
almshouse.  The  children  were  placed  in 
the  east  end  of  the  northwestern  range  of 
buildings. 

From  Dr.  Alfred  Stille's  reminiscences  of 
the  Philadelphia  hospital  we  learn  something 
of  the  condition  of  the  children  in  this  insti- 
tution. Dr.  Still6  was  a  resident  physician 
of  the  institution  in  its  earliest  days,  and  had 
special  charge  of  the  children's  asylum.  He 
Conditions  says,  "  A  hundred  or  more  children  w^ere 
at  the       sheltered  there  on  their  way  to  the  early 

Blockley  r    ^  i      .  ; 

almshouse,  grave  to  which  most  of  them  were  destmed. 

Illegitimate  and  other  outcasts  formed  the 
majority,  and  ophthalmia,  that  curse  of  chil- 
dren's asylums,  made  of  them  a  sore-eyed, 
puny  group  most  pitiable  to  see.  I  soon  be- 
came convinced  of  the  causes  that  produced 
the  crippling  and  mortality  of  these  outcasts 
and  waifs.  I  pointed  out  to  the  committee  of 
the  board  how  the  disease  was  disseminated  by 
the  children  washing  in  the  same  basins  and 
using  the  same  towels,  and,  it  was  maintained, 
by  their  having  no  shady  places  for  exercise 
in  the  open  air,  and  also  by  the  insufificient 
food  permitted  them.  .  .  .  But,  of  course, 
the  committee  of  the  children's  asylum  and 
the  guardians  knew  better  than  I,  and,  at  the 


BOSTON 


29 


time  at  least,  nothing  was  done  to  correct  this  where  de- 
wrong/'  pendent 

So  far  as  we  can  ascertain,  the  destitute  continued 
children  supported  by  the  city  of  Philadelphia  to  be 
remained  in  Blockley  almshouse  until  the  [^j^j^lg^^'^' 
passage  of  the  children's  law  of  1883,  a  period 
of  forty-eight  years. 

The  city  of  Boston,  which  had  built  an 
almshouse  in  1800,  soon  found  it  outgrown,  Boston, 
and  in  1822  a  new  structure  was  completed 
in  South  Boston,  known  as  the  house  of  in- 
dustry.  This  institution  (both  almshouse  and 
prison,  and  receiving  both  children  and  adults) 
was  placed  under  the  charge  of  a  body  called 
the  board  of  directors  of  the  house  of  industry. 
Controversy  arising  between  this  body  and  the 
overseers  of  the  poor,  the  functions  of  the 
overseers  were  by  statute  limited  to  the  dis- 
tribution of  outdoor  relief,  and  of  certain  trust 
funds.    The  custody  of  the  pauper  children 
of  the  almshouse  was  vested  henceforth  in 
the  directors  of  the  house  of  industry.  Al- 
though the  city  established  a  reform  school  Juvenile 
for  juvenile  offenders  in  1826  (located,  un-  ^^^y^^^^i^ 
fortunately,  in  a  portion  of  the  buildings  of  lished, 
the  house  of  correction  for  adult  offenders),  ^^2^- 
no  separate  provision  for  pauper  children  was 
made  until  much  later.    The  need  of  remov- 
ing the  children  from  adult  paupers  was,  how- 


PUBLIC  CARE        TO  1875 


ever,  realized  by  the  directors  of  the  house  of 
industry,  for  in  1833  their  annual  report  states 
that  In  closing  these  remarks  the  directors 
would  respectfully  urge  the  necessity  of  re- 
moving the  children  from  the  adult  paupers. 
Experience  has  shown  that  children  brought 
up  and  indented  from  almshouses  often  feel 
toward  it  a  filial  regard,  and  having  been  ac- 
customed to  see  grown  persons  supported 
there  for  no  other  reason  than  that  they  are 
addicted  to  idleness  and  intemperance,  again 
resort  to  it  themselves  rather  than  encounter 
the  common  difficulties  of  life/'  The  report 
for  1834  speaks  of  ten  children  at  the  alms- 
house likely  to  remain  permanent  paupers 
(on  account  of  idiocy,  etc.),  and  122  who  will 
probably  be  indentured  as  they  arrive  at  a 
suitable  age,  or  be  discharged  to  parents  and 
friends.  In  the  same  year,  1834,  the  city 
Depend-  council  established  at  the  house  of  industry 
ent  chil-     ^  building  known  as  the    children's  asylum.*' 

dren  partly  ^  , 

separated  The  ovcrsccrs  of  the  poor  appropriated  the 
from  adult  income  from  one  of  the  principal  trust  funds 
1834^^^^'  under  their  care,  the  Boylston  education 
fund,  to  the  support  of  certain  children  in 
this  institution,  which  henceforth  was  known 
as  the  Boylston  school,  or  Boylston  asylum, 
though  remaining  a  part  of  the  house  of  in- 
dustry. 


BOSTON 


31 


In  1837  the  house  of  reformation  (juvenile 
reformatory)  was  transferred  to  a  building 
erected,  against  the  protest  of  the  managers, 
near  the  house  of  correction  and  house  of 
industry.  It  was  at  this  time  under  a  control 
separate  from  that  of  any  other  institution, 
but  in  1 84 1  the  city  council  made  it  a  part  of 
the  house  of  industry,  placing  it  under  the 
control  of  the  board  of  directors  of  the  latter 
institution.  The  destitute  boys  who  had  been  Juvenile 
in  the  Boylston  school  or  asylum  were  trans- 

quents 

ferred  to  a  wing  of  the  house  of  reformation  and  de- 
building,  and  placed  under  the  officers  of  the  pendents 
latter  institution,  though   they  were  kept  [^oget^Jr 
"quite  separate.''    Provision  was  thus  made  1841. 
for  a  portion  of  the  pauper  children  some- 
what apart  from  the  adult  paupers  and  crim- 
inals, but  in  the  same  building  with  juvenile 
offenders. 

In  1849  ^  large  building  was  erected  on 
Deer  island,  and  thither  were  removed  the 
inmates  of  the  house  of  industry,  —  adult  Deer  is- 
prisoners,  adult  paupers,  and  juvenile  pau-  land^i849,. 
pers,  except  the  boys  over  six  years  of  age  ^nd  chil- 
who  remained  in  one  wing  of  the  house  of  dren  prac- 
reformation  for  juvenile  offenders  in  South 

one  insti- 

Boston.    This  institution  also  was  removed  tution. 
to  Deer  island  in  1858.     Presumably  the 
pauper  children  were  in  separate  buildings 


I  32 


PUBLIC  CARE  UP  TO  1875 


Charles- 
ton's 
orphan 
house,  the 
single  ex- 
ception to 
the  gen- 
eral failure 
of  munici- 
pal care  of 
destitute 
children. 


on  Deer  island,  for  the  report  of  1853  speaks 
of  two  schools  on  Deer  island,  in  one  of 
which  were  seventy  girls  and  small  boys, 
and  in  the  other  1 16  older  boys.  There  were 
also  131  boys  in  the  Boylston  school,  or 
juvenile  pauper  wing  of  the  house  of  refor- 
mation building,  making  a  total  of  3 1 7  indoor 
juvenile  paupers.  The  next  year,  1854,  214 
children  were  reported  at  Deer  island,  and 
fifty-nine  "  at  nurse.'* 

No  further  radical  changes  occurred  until 
after  1875.  At  the  close  of  the  first  three 
quarters  of  the  century  Boston  provided  for 
its  destitute  and  neglected  children  in  build- 
ings on  Deer  island  which  were  under  the 
control  of  the  almshouse  authorities,  and 
practically  formed  a  part  of  that  institution. 

The  history  of  the  Charleston  orphan 
house,  a  strictly  municipal  institution,  from 
1790  to  the  present,  has  been  in  every  way 
creditable  to  that  city.  The  institution  still 
stands  on  the  site  of  the  original  building 
erected  in  1794.  It  has  received  a  number 
of  bequests  and  donations  from  private  citi- 
zens, so  that  about  half  of  its  present  income 
is  derived  from  this  source,  and  half  from  the 
city  treasury.  The  first  kindergarten  in 
Charleston  was  established  at  the  orphan 
house  in    1 877.     The  government  of  the 


THE  STATE  OF  MASSACHUSETTS  33 


institution  is  vested  in  ten  commissioners  ap- 
pointed by  the  city  council. 

Notwithstanding  the  success  of  the 
Charleston  orphan  house,  few  persons,  if 
any,  will  dissent  from  the  statement  that  the 
direct  care  of  destitute  children  by  American 
municipalities  prior  to  1875  was,  as  a  rule,  a 
pitiful  failure. 

In  the  meantime,  the  state  of  Massachu- 
setts, which  since  about  1793  had  reim- 
bursed the  various  towns  and  cities  for  the 
care  of  the  "unsettled  poor,"  had  made  its 
own  provision  for  this  class  by  establishing.  State  care 
in  185 1-2,  three  state  almshouses,  at  Tewks-  ^^ssa- 

chusetts. 

bury,  Bridgewater,  and  Monson.  At  each 
of  these,  children,  as  well  as  adults,  were 
received.  In  1855  an  act  was  passed  requir- 
ing the  removal  of  all  children  from  Bridge- 
water  and  Tewksbury  to  Monson,  but  through 
the  influence  of  the  superintendents  of  the 
three  institutions  it  was  repealed  the  next 
year.  By  1858  the  population  of  these  three 
institutions  exceeded  2500,  of  whom  more 
than  half  were  children.  This  population 
was  described  by  the  board  of  state  charities 
as  a  motley  collection  of  broken-backed, 
lame-legged,  sore-eyed,  helpless,  and  infirm 
human  beings,  with  scarcely  an  adult  that  is 
able  in  body  and  mind/'    We  are  informed 

D 


34 


PUBLIC  CARE  UP  TO  1875 


Transfer 
of  state 
children 
to  Mon- 
son,  1864, 
and  desig- 
nation of 
this  insti- 
tution as 
the  "  state 
primary 
school." 


Establish- 
ment of 
state  visit- 
ing agen- 
cy, 1869. 


that  the  children  were  packed  like  sardines 
in  double  cradles  ;  were  cared  for  by  pauper 
inmates,  and  were  indentured  to  people 
whose  credentials  could  hardly  have  received 
a  proper  investigation  at  the  hands  of  the 
overworked  house  officials.  The  board  of  state 
charities,  established  in  1863,  was  authorized 
to  transfer  inmates  of  any  state  almshouse  to 
any  other  state  almshouse.  One  of  its  first 
acts,  in  1864,  was  to  transfer  the  children 
from  Bridgewater  and  Tewksbury  to  Mon- 
son.  Subsequently,  in  1866,  the  Monson 
institution  was  declared  to  be  the  state  pri- 
mary school,  and  thereafter  the  children  were 
not  to  be  designated  as  paupers.  This  was 
the  first  state  institution  for  destitute  children 
in  the  United  States.  In  1872  the  almshouse 
department  at  Monson  was  abolished,  though 
many  adult  paupers  remained  in  the  state 
primary  school  as  helpers. 

The  board  of  state  charities  engaged  an 
agent  to  visit  the  children  who  had  been  in- 
dentured from  the  state  almshouses  and  the 
state  reform  schools.  This  led  to  the  estab- 
lishment, in  1869,  of  a  state  visiting  agency, 
to  visit  all  children  placed  out  from  state  in- 
stitutions, and  to  visit  and  report  upon  the 
homes  of  applicants  for  children.  The  visit- 
ing agency  was  independent  of  any  other 


NEW  YORK  STATE 


35 


state  body,  its  executive  officer  being  ap- 
pointed by  the  governor,  but  it  reported  to 
the  board  of  state  charities.  It  was  also  the 
duty  of  the  visiting  agent  to  attend  trials  of 
juvenile  offenders,  and,  having  investigated 
the  circumstances,  to  advise  the  magistrates 
whether  the  children  should  be  committed  to 
a  reform  school,  or  to  the  custody  of  the 
board  of  state  charities,  to  be  placed  by  it 
with  their  parents  or  in  other  families,  or 
temporarily  in  the  state  primary  school  at 
Monson,  later  on  to  be  placed  in  families,  or 
if  they  proved  unmanageable,  transferred  to 
reform  schools.  Thus  early  were  the  essen- 
tial features  of  flexibility  and  transfer  from 
one  institution  to  another,  or  to  a  family,  ac-  Flexibility 
cording  to  the  developments  of  the  individual  disposi- 
child,  secured.  By  1875,  Massachusetts,  so  children 
far  as  its  state  charges  were  concerned,  had  secured, 
separated  its  juvenile  from  its  adult  paupers, 
and  had  established  an  adequate  system  of 
supervision  of  indentured  children. 

Meanwhile,  almshouses  had  been  estab- 
lished by  many  smaller  cities,  and  in  some 
states  by  counties  or  towns.  Perhaps  the 
most  complete  statement  of  the  methods  of 
public  care  of  the  poor  in  the  earlier  part 
of  the  century  is  contained  in  the  report  of 


Experi- 
ence in 
New  York 
state. 


36  PUBLIC  CARE  UP  TO  1875 


an  investigation  made  by  the  then  secretary 
of  the  state  of  New  York,  Hon.  J.  V.  N. 
Yates,  in  1823.  This  report  includes  not  only 
a  statement  of  the  condition  of  the  poor  in 
The  Yates  each  county  and  town  in  New  York,  but  also 
report,  ^  detailed  report  from  nearly  every  other 
state  in  the  union.  The  report  from  Brook- 
lyn showed  that  there  were  thirteen  boys  and 
seven  girls  in  the  almshouse,  and  also  thirteen 
men  and  twenty-one  women.  The  training 
received  by  the  children  is  perhaps  suggested 
by  the  report  of  the  Brooklyn  official:  "  It  is 
indispensable  that  the  children  should  be  edu- 
cated, but  in  some  almshouses  (as  it  is  in  ours 
at  present)  there  may  be  none  able  to  teach 
the  children ;  and  on  account  of  disorders  in- 
cident to  public  places,  it  would  be  improper 
to  send  them  to  the  public  district  school; 
the  children  must  remain  uneducated  or  some 
provision  must  be  made  to  hire  a  teacher. 
Would  it  not  be  right  to  give  the  almshouse 
a  particular  demand  on  the  school  fund  ? 
In  Albany,  of  126  paupers  in  the  almshouse 
in  1823,  forty-six  were  children  under  the  age 
of  seven  years. 

The  general  conclusion  reached  by  Mr. 
Yates  was  that  outdoor  relief  was  harmful, 
and  that  the  building  of  county  almshouses 
would  solve  most  of  the  difficulties  connected 


THE  YATES  REPORT 


37 


with  public  relief.     The  report  stated  that 
**The  education  and  morals  of  the  children  County 
of  paupers  (except  in  almshouses)  are  almost  f^"^^" 

houses  en- 

wholly  neglected.    They  grow  up  in  filth,  couraged, 
idleness,  and  disease,  and  many  become  early  as  afford- 
candidates  for  the  prison  or  the  grave.    The  Junit^y^to^" 
evidence  on  this  head  is  too  voluminous  for  educate 
reference.''  P^^P^^ 

...  .  .        ....        .1  children. 

Agam,  m  summmg  up  the  situation,  the 
report  states :  "  Most  of  the  children  of 
paupers  out  of  an  almshouse  are  not  only 
brought  up  in  ignorance  and  idleness,  but 
their  health  is  precarious,  and  they  fre- 
quently die  prematurely.  The  reverse  is 
the  case  in  an  almshouse.  Their  health 
and  morals  are  alike  improved  and  secured, 
and  besides  they  receive  an  education  to  fit 
them  for  future  usefulness." 

It  was  recommended  that  in  every  county 
there  should  be  established  one  or  more 
houses  of  employment,  in  which  paupers 
were  to  be  maintained  and  employed,  and 
their  children  to  be  carefully  instructed,  and 
at  suitable  ages  to  be  put  out  to  some  useful 
business  or  trade. 

The  report  received  favorable  considera- 
tion, and  led  to  the  passage  of  the  law  of 
1824,  which  established  the  county  alms- 
house system  in  New  York. 


38 


PUBLIC  CARE  UP  TO  1875 


The  rapidly  developing  central  and  western 
states  generally  adopted  systems  of  poor  re- 
lief similar  to  those  of  New  York  and  Penn- 
sylvania, though  the  contract  and  farming-out 
plans  seem  to  have  found  small  place  in  those 
states.  The  town  overseers  generally  were 
authorized  to  give  temporary  outdoor  relief, 
but  permanent  outdoor  relief,  if  given,  and 
the  almshouses,  were  administered  by  the 
county  authorities. 

It  gradually  became  evident  to  thoughtful 
observers  that  the  high  hopes  of  Secretary 
Yates,  expressed  in  his  report  of  1824,  that 
in  almshouses  the  children  of  paupers  would 
be  trained  and  taught  to  be  useful,  and  thus 
Experi-  bccome  desirable  members  of  society,  were 
ence,how-  ^ot  to  be  fulfilled.     Miss  Dorothea  Lynde 

ever  coil" 

dem'ned  report  of  her  visitation  of  the 

almshouse  almshouses  of   New  York  in   1844,  said: 

shelter  of  n  'Yhcy  do  not  guard  against  the  indiscrimi- 

children.  ....       ,     .  .  1     ,  ^ 

nate  association  of  the  children  with  the  adult 
poor.  The  education  of  these  children,  with 
rare  exceptions,  is  conducted  on  a  very  defec- 
tive plan.  The  almshouse  schools,  so  far  as  I 
have  learned  from  frequent  inquiries,  are  not 
inspected  by  official  persons,  who  visit  and 
examine  the  other  schools  of  the  county." 

In  1856  a  select  committee  appointed  by 
the  New  York  senate  made  a  careful  report 


INDENTURE 


39 


on  the  public  charities  of  the  state.  The 
condition  of  the  almshouses  generally  was 
unsparingly  condemned,  and  especially  their 
harmful  effects  upon  the  children.  *'The 
committee  are  forced  to  say  that  it  is  a  great 
public  reproach  that  they  [the  children]  should 
be  permitted  to  remain  in  the  poorhouses. 
As  they  are  now  mismanaged,  they  are  for 
the  young  the  worst  possible  nurseries.*' 
From  this  time  on,  the  conviction  slowly 
spread  that  poorhouses  were  not  good  places 
for  children  to  grow  up  in.  In  the  fulness  of 
time,  almost  twenty  years  after  the  above 
report  was  submitted  by  the  senate  comrnit- 
tee,  legislation  began  to  be  secured  prohibit- 
ing the  retention  of  children  in  almshouses. 

The  indenture  system  was  a  very  impor- 
tant part  of  the  provision  for  destitute  chil- 
dren during  the  first  three  quarters  of  the  indenture 
century.    The  statutes  of  many  states  con-  in  general 
tained  elaborate  provisions  with  regard  to  the  jj^^ny 
indenturing  of  children.    Some  of  these  are  years, 
interesting.    The  Massachusetts  act  of  1793 
directed  that  in  indentures    Provision  shall 
be  made  for  instructing  the  male  children  to 
read,  write,  and  cipher,''  and    For  such  other 
instruction,  benefit,   and   allowance  either 
within  or  at  the  end  of  the  term,  as  to  the 
overseers  may  se-^m  fit  and  reasonable/*  —  a 


40 


PUBLIC  CARE  UP  TO  1875 


degree  of  flexibility  and  adaptiveness  to  indi- 
vidual cases  that  has  sometimes  been  lacking 
in  more  modern  legislation.  In  Maryland  in 
1793  an  act  was  passed  For  the  better  regu- 
lation of  apprentices,"  indicating  that  there 
had  been  earlier  legislation  upon  the  subject 
The  preamble  recited,  Whereas,  it  has  been 
found  by  experience  that  poor  children, 
orphans,  and  illegitimate,  for  want  of  some 
efficient  system  have  been  left  destitute  of 
support  and  have  become  useless  or  depraved 
members  of  society ;  And,  Whereas  it  would 
greatly  conduce  to  the  good  of  the  public  in 
general  and  of  such  children  in  particular  that 
necessary  instruction  in  trades  and  useful  arts 
should  be  afforded  them ;  Therefore,"  etc. 
The  justices  of  the  orphans'  courts  were 
authorized  to  bind  out  orphans,  '*and  such 
children  as  are  suffering  through  the  extreme 
indigence  or  poverty  of  their  parents,  also  the 
children  of  beggars,  and  also  illegitimate  chil- 
dren, and  the  children  of  persons  out  of  this 
state  where  a  sufficient  sustenance  is  not 
afforded."  Trustees  of  the  poor  in  the  vari- 
ous counties  were  authorized  to  bind  out  chil- 
dren under  their  care  in  the  poorhouses, 
preferably  to  tradesmen  and  mechanics.  In 
1826  the  act  was  amended  so  as  to  author- 
ize the  binding  out  of  children  who  were 


INDENTURE 


41 


found  begging  upon  the  streets  of  the  city 
of  Baltimore.  The  indenture  system  was 
authorized  by  law  in  the  territory  of  Indiana 
in  1807.  The  annual  message  of  the  mayor 
of  the  city  of  New  York  for  the  year  1840 
states  that  349  children  had  been  bound  out 
during  the  preceding  year. 

The  old-fashioned  indenture  or  apprentice 
system  passed  largely  into  disuse,  if  not  into 
disrepute,  by  1875.    It  is  clearly  not  in  har-  but  aban- 
mony  with  the  spirit  of  these  later  times  to  do^^d 

bind any  one  to  serve  another  person  for  a  j^^^^j.  p^^.^ 
definite  term  of  years.    The  bound  child  has  of  the 
often  been  alluded  to  as  typifying  loneliness,  ^^^^^'T* 
neglect,  overwork,  and  a  consciousness  of  be- 
ing held  in  low  esteem. 

It  is  probable,  however,  that  in  the  earlier 
part  of  the  century  the  system  was  not  with- 
out merit,  and  that  as  the  apprentice  system 
as  a  whole  passed  away  with  the  profound 
changes  that  occurred  in  industrial  conditions,  as  chang- 
the  indenturing   of   children  underwent   a  [^^j^^^^^' 
change  for  the  worse.     The  value  of  the  conditions 
instruction  received  from  the  "  masters be-  ^^^^ 
came  less,  and  the  value  of  the  services  ren-  apprentice 
dered  by  the  children  increased.    In  its  worst  to  master 
forms,  and  especially  in  some  localities,  cer-  ^^^^ 

.     -  r   1      •    T  .        mate  and 

tarn  features  of  the  mdenture  system,  particu-  kindly, 
larly  the  recapture  of  apprentices  who  ran 


42  PUBLIC  CARE  UP  TO  1875 

away,  painfully  remind  one  of  human  slavery. 
In  fact,  it  has  been  seriously  suggested  that 
by  the  adoption  of  the  constitutional  amend- 
ment, in  1865,  forbidding  "involuntary 
servitude,"  the  indenture  system  became  un- 
constitutional. In  the  early  part  of  the  cen- 
tury, however,  when  learning  a  trade  was  a 
matter  of  the  highest  importance,  the  system 
was  undoubtedly  something  quite  different 
from  what  it  became  in  later  years.  Though 
there  were  doubtless  many  cases  of  hardship 
from  exacting  or  cruel  masters,  it  is  likely 
that  the  indentured  children,  as  a  whole,  were 
more  fortunate  than  those  maintained  by 
public  outdoor  relief  or  in  almshouses.  Miss 
Mary  E.  Wilkins,  in  a  collection  of  stories  for 
children,  tells  a  pretty  story  of  a  bound  girl 
who  was  afterwards  adopted,  and  gives  an 
authentic  copy  of  an  indenture  paper  executed 
in  Boston  in  1753.^ 

1  "The  pot  of  gold,"  Lothrop,  Boston,  1893. 


CHAPTER  III 


PRIVATE  CHARITIES  FOR  DESTITUTE  CHIL- 
DREN, 18OI-1875 

Historical  sources  :  Minutes  of  union  society,  Savannah, 
1 750-1 858,  with  historical  sketch  of  Bethesda  orphan  asy- 
lum (J.  M.  Cooper  &  Co.,  Savannah,  i860)  ;  also  proceed- 
ings of  the  1 14th  anniversary  of  the  union  society,  April  25, 
1899.  Reprint  of  annual  reports  of  the  orphan  asylum 
society  of  New  York  city,  1 806-1 896  (2  vols.,  published  by 
the  society).  For  sketch  of  several  endowed  institutions 
see  L.  P.  Alden's  article  in  report  of  committee  on  history 
of  child-saving,  national  conference  of  charities  and  correc- 
tion, 1893  ;  ^Iso  article  by  W.  P.  Letchworth  in  same  vol- 
ume. The  reports  of  Girard  college  are  included  in  the 
reports  of  the  board  of  city  trusts,  Philadelphia.  "The 
dangerous  classes  of  New  York,"  by  C.  L.  Brace  (Wyn- 
koop  &  Hallenbeck,  New  York,  1872),  gives  views  and 
experiences  of  the  founder  of  the  children's  aid  society. 
See  also  early  reports  of  the  New  York  children's  aid 
society.  For  early  history  of  many  New  York  private  insti- 
tutions see  "The  charities  of  New  York,  Brooklyn,  and 
Staten  Island,"  by  H.  J.  Cammann  and  H.  N.  Camp  (Hurd 
&  Houghton,  New  York,  1868)  ;  and  "New  York  and  its 
institutions,  1 604-1 872,"  by  J.  F.  Richmond  (Treat,  New 
York,  1872).  Scharf  &  Westcott's  history  of  Philadelphia, 
volume  ii,  has  a  chapter  on  Philadelphia  charities.  "  The 
memorial  history  of  Boston,"  188 1,  has  a  chapter  by  G.  S. 
Hale  on  the  charities  of  Boston.  Report  of  Boston  (female) 
orphan  asylum  for  1898  includes  historical  statement.  Reports 
of  Boston  asylum  and  farm  school  for  indigent  boys.  Acts 
of  incorporation,  by-laws,  etc.,  of  Baltimore  orphan  asylum, 
1 89 1.    See  early  reports  of  the  New  York  catholic  protec- 

43 


44  PRIVATE  CHARITIES  TO  1875 


tory,  1 863-1 875,  and  of  the  New  York  juvenile  asylum, 
1 85 1- 1 875.  "  Catholic  child-helping  agencies  in  the  United 
States,"  national  conference  of  charities  and  correction, 
1896;  Jewish  child -saving  in  the  United  States,  national 
conference  of  charities  and  correction,  1897.  ^^^o 
reports  Massachusetts  infant  asylum,  1 867- 1 875 ;  nursery 
and  child's  hospital.  New  York,  1 854-1 875 ;  and  Boston 
children's  aid  society,  1 863-1 875. 

Though  there  has  b.een  throughout  the 
century  a  steady  growth  in  the  number  and 
importance  of  children's  institutions  founded 
from  philanthropic  motives  and  supported  by 
the  gifts  of  the  generous,  it  seems  best  to  i 
divide  their  history  into  two  chapters, —  1801  \ 
to  1875,  and  1875  to  the  close  of  the  century. 
The  establishment  of  public  systems  of  child- 
saving  work  in  various  states  in  the  decade 
1 870-1 880,  and  the  enactment  of  laws  for  the 
removal  of  children  from  almshouses,  changed 
the  conditions  under  which  the  private  chari- 
ties did  their  work,  and  in  some  states  strongly 
affected  their  character  and  methods.  The 
work  of  the  private  agencies  for  the  care  of 
destitute  children  after  1875  will  therefore  be 
taken  up  after  we  have  considered  the  public 
systems  adopted  in  various  states  in  place  of 
caring  for  children  in  almshouses. 

Prior  to  the  opening  of  the  nineteenth  d 
century  agencies  for  the  care  of  destitute  I 
children  had  been   established  by  private  I 


NEW  YORK  ORPHAN  ASYLUM  45 


benevolence  in  the  cities  of  New  Orleans, 
Savannah,  New  York,  Philadelphia,  Balti-  The  first 
more,   and   Boston.     The   orphan   asylurn  ^^^^^^f 
founded  by  Whitefield  in  Savannah  in  1738  for  chil- 
passed  through  many  vicissitudes,  and  gradu-  dren. 
ally  became  an  academy  rather  than  an  orphan 
home.    It  was  Whitefield's  wish  to  have  it 
become  a  college,  but  his  majesty,  George  II, 
declined  to  grant  a  college  charter.  The 
buildings  were  twice  burned,  and  the  acad- 
emy was  closed  in  1791.     The  five  other 
organizations  founded  prior  to  1801  have  con- 
tinued their  work  to  the  present. 

The  first  charity  for  children  organized  in 
the  United  States  after  1800  was  the  New 
York  orphan  asylum  society.     During  the  New  York 
early  days  of  the  society  for  the  relief  of  orphan 
widows  with  small   children,  organized   in  go^iety 
1797,  the  question  often  arose  as  to  how  the  1806. 
children  of  deceased  widows  should  be  cared 
for,  the  funds  of  the  society  not  being  availa- 
ble for  their  support.    A  copy  of  the  life  of 
Francke,  with  a  history  of  his  orphan  house 
at  Halle,  fell  into  the  hands  of  one  of  the 
managers  of  the  society,  and  this  led  to  the 
establishment  of  the  orphan  asylum  society. 

The  original  constitution  of  the  society, 
adopted  in  1807,  provided  that  admittance 


46  PRIVATE  CHARITIES  TO  1875 


should  be  granted   only  to  orphans,  who 
should  be  educated,  fed,  and  clothed  at  the 
Its  policy :  expense  of  the  society,  and  at  the  asylum.  It 
rudimen-  further  provided  that,    As  soon  as  the 

taryeduca-  ^ 

tion,         age  and  acquirements  of  orphans  shall,  in  the 
followed     opinion  of  the  board  of  direction,  render  them 
turr^^""    capable  of  earning  their  living  they  must  be 
bound  out  to  some  reputable  persons  or  fami- 
lies for  such  object  and  in  such  manner  as  the 
board  shall  approve." 

In  the  absence  of  a  public  school  system 
it  was  natural  that  the  managers  should  feel 
that  the  admission  of  the  children  was  neces- 
sary for  their  education,  no  less  than  for 
their  maintenance.  It  would  have  been 
very  difficult  at  that  time  to  secure  the  edu- 
cation of  children  placed  out  in  free  homes 
or  boarded  in  families.  The  early  reports  of 
the  society  all  indicate  that  the  children 
were  to  be  placed  out  as  soon  as  they  had 
received  a  fair  education.  The  by-laws  pro- 
vided that,  "The  boys  shall  be  bound  to 
farmers  or  mechanics,  the  girls  to  respect- 
able families.  A  book  shall  be  kept  at  the 
asylum  in  which  applicants  for  children  shall 
insert  their  names,  occupations,  and  refer- 
ences for  character,  which  shall  be  laid  be- 
fore the  board.  At  the  monthly  meeting  a 
committee  shall  be  appointed  to  make  the 


NEW  YORK  ORPHAN  ASYLUM  47 


necessary  inquiries.*'  In  the  charter  of  the 
society,  granted  by  the  legislature  in  1807, 
its  purposes  were  declared  to  be  "  protecting, 
relieving,  and  instructing  orphan  children." 

The  third  annual  report  states  that  the  plan 
of  the  society  is,  *'To  bind  out  the  girls  as 
servants  from  the  time  they  can  read  and 
write  until  they  are  eighteen ;  and  the  boys, 
when  equally  instructed,  are  to  be  put  out 
as  servants  till  the  age  of  fifteen,  at  which 
time  they  are  to  be  returned  to  the  trustees 
of  the  asylum,  who  will  then  bind  them  as 
apprentices  to  virtuous  mechanics/' 

Before  the  society  was  two  years  old,  find- 
ing itself  encumbered  with  debt,  it  applied  to 
the  state  legislature  for  assistance,  an  unfor-  Appeal  to 
tunate  example  that  has  been  very  generally  public 
followed  by  New  York  children's  institu-  for^a^ub- 
tions.    The  legislature  responded  by  extend-  sidy, 
ing  the  grant  of  a  lottery  which  it  had  pre- 
viously made  to  the  board  of  health,  upon 
condition  that  ^5000  of  the  proceeds  should 
be  paid  to  the  orphan  asylum  society.  The 
sum  of  ;^5ooo  was  received  from  the  proceeds 
of  this  lottery  in  181 5,  but  meanwhile,  in  181 1, 
the  legislature  granted  the  society  an  annual 
contribution  of  j^SOO,  to  be  paid  from  the 
duties  on  auction  sales,  a  sum  which  the  soci- 
ety received  each  year  until  1853. 


48  PRIVATE  CHARITIES  TO  1875 


The  early  reports  of  the  society  indicate 
that  a  considerable  number  of  their  children 
were  received  directly  from  the  almshouse. 
The  society  often  stated  with  pride,  that 
no  orphan  child  had  ever  been  refused  ad- 
mission to  the  institution.  The  twelfth  report 
states  that  in  the  month  of  February  eleven 
orphan  children  were  received  from  the  New 
York  almshouse,  and  adds  that  "  The  honor- 
able, the  corporation,  have  never  been  pre- 
vailed upon  to  extend  even  a  small  share 
of  that  patronage  to  this  society  which  it 
might  seem  to  claim  from  them,  and  for 
which  they  had  been  repeatedly  solicited.** 
An  interesting  glimpse  of  the  life  of  the 
children  in  the  asylum  is  afforded  by  the 
fourteenth  annual  report,  which  informs  us 
that  The  boys  have  been  employed  in 
Occupa-  reading,  writing,  arithmetic,  and  committing 
th  ^^h'l  scripture  to  memory,  thirty-four  boys  having 
dren.  learned  from  150  to  1500  verses  each,  and 
one  has  committed  the  whole  of  the  New 
Testament.  For  health  and  recreation  they 
have,  under  the  direction  of  the  superintend- 
ent, cultivated  the  ground  owned  or  rented 
by  the  society.** 

The  sixteenth  annual  report,  dated  April, 
1822,  stated  that  since  the  commencement 
of  the  society  there  had  been  received  446 


INSTITUTIONS  IN  OTHER  CITIES  49 


children,  of  whom  243  had  been  placed 
with  respectable  employers,  a  number  were 
out  on  trial,  fifteen  had  died,  and  152 
remained  in  the  asylum. 

A  year  after  the  New  York  orphan  asylum 
was  organized,  a  society  in  Baltimore,  known 
as  the  female  orphaline  charity  school,  pur-  Baltimore 
chased  a  house  and  added  to  its  educational  ^^P^^^ 

1       ,  1         '  r     1      .  asylum, 

work  the  care  and  mamtenance  of  desti-  1807. 
tute  children.  It  had  been  established 
in  1778  as  the  female  humane  associated 
charity  school.  Although  the  care  of  chil- 
dren was  undertaken,  in  addition  to  their  edu- 
cation, in  1807,  the  name  of  the  institution 
was  not  changed  until  1827,  when  it  became 
the  Baltimore  female '  orphan  asylum,  the 
name  being  again  changed  in  1846,  to  the 
Baltimore  orphan  asylum.  The  act  of  incor- 
poration of  1807  provided  that,  For  the 
orderly  management  of  said  school,  there 
shall  be  annually  appointed  nine  discreet 
female  characters.  ..."  The  directors  were 
also  given  power  to  bind  out  children  placed 
in  the  school. 

In  181 3  the  Boston  asylum  for  indigent 
boys  was  organized,  for  the  purpose  of  *^  re-  Boston 
lieving,  instructing,  and  employing  indigent  fsylumfor 
boys."     In  1835  the  institution  was  consoli-  1^075^^813. 
dated  with  the  Boston  farm  school  society, 

£ 


50  PRIVATE  CHARITIES  TO  1875 


which  two  years  before  had  purchased  Thomp- 
son's island,  in  Boston  harbor,  and  opened  an 
institution  for  the  education  and  reforma- 
tion of  boys  who  from  loss  of  parents  or  other 
causes  were  exposed  to  extraordinary  temp- 
tations/' 

In  1 8 14  the  orphan  society  of  Philadelphia, 
apparently  modeled  somewhat  after  the  New 
York  and  Baltimore  societies,  was  organized 
''to  protect,  relieve,  support,  and  instruct  or- 
phan children/'  In  the  following  year,  under 
Other  in-  the  leadership  of  the  wife  of  President  Madison, 
stitutions.  Washington  city  orphan  asylum  was  estab- 
lished at  the  national  capital.  This  institution 
has  remained  dependent  upon  private  gener- 
osity, its  only  aid  from  public  sources  being  a 
grant  of  land  valued  at  10,000  in  1832.  The 
protestant  orphan  asylum  of  Natchez,  Miss., 
was  organized  in  18 16.  The  following  year, 
three  institutions  were  established,  —  the  Poy- 
dras  female  orphan  asylum,  endowed  by  Julien 
Poydras,  in  New  Orleans,  St.  Mary's  female 
orphan  asylum,  of  Baltimore,  and  the  Roman 
catholic  orphan  asylum  society  in  New  York 
city,  the  latter  two  being  the  first  cathoUc  in- 
stitutions in  these  cities. 

The  writer  has  not  found  it  possible  to 
prepare  a  complete  list  of  the  private  institu- 
tions for  children  established  in  the  United 


LIST  OF  CHILDREN'S  CHARITIES        5 1 


States.  Fewer  than  half  of  the  states  have 
state  boards  of  charities,  and  even  the  reports 
of  most  of  these  boards  give  little  information 
concerning  private  institutions.  In  several  of 
the  largest  cities,  directories  of  charities  are 
published  by  the  charity  organization  societies, 
from  which  lists  of  children's  charities  in  these 
cities  may  be  compiled.  The  report  on  crime,  List  of 
pauperism,  and  benevolence  forming  a  part  Pioneer 

r    1        -I  -I  ^  .        .  ..  private 

of  the  eleventh  census,  1 890,  gives  m  part  n,  children's 
pages  894-936,  a  list  of  benevolent  institutions  charities 
in  each  state.    They  are  not  classified,  how-  ^^^^^^ 
ever;  orphan  asylums,  hospitals,  homes  for  states, 
the  aged,  and  other  charities  being  grouped  in 
one  table,  and  the  name  often  giving  no  clue 
to  the  nature  of  the  institution.    Nor  is  there 
any  list  of  the  institutions  discontinued  prior 
to  1890,  though  the  number  would  probably 
be  small,  the  longevity  of  organized  charita- 
ble agencies  being  remarkable.   A  writer  has 
pointed  out,  in  T/ie  Charities  Review  for  May, 
1895,  that  of  the  nineteen  charitable  institu- 
tions in  Boston  sixty  years  before,  only  three 
had  ceased  to  exist,  while  of  fifteen  public 
buildings  and  associations  only  five  remained. 

From  all  of  the  sources  indicated  above, 
and  by  special  correspondence,  a  table  has 
been  prepared,  which  is  believed  to  be  rea- 
sonably complete,  showing  the  dates  of  the 


52  PRIVATE  CHARITIES  TO  1875 


organization  of  private  charities  for  children 
during  the  first  half  of  the  century,  as  fol- 
lows : 

1727  Orphan  asylum  of  Ursuline  convent,  New 
Orleans. 

1738    Bethesda  orphan  house,  Savannah. 

1797  Society  for  the  relief  of  widows  and  small  chil- 
dren, New  York. 

1798  St.  Joseph's  female  orphan  asylum,  R.  C, 
Philadelphia. 

1799  St.  Paul's  orphanage,  P.  E.,  Baltimore. 

1800  Boston  (female)  orphan  asylum. 

1806  Orphan  asylum  society.  New  York. 

1807  Orphan  asylum,  Baltimore. 

1813  Boston  asylum  for  indigent  boys. 

1814  Orphan  society  of  Philadelphia. 

181 5  Washington  city  orphan  asylum,  Washington. 

1 81 6  Protestant  orphan  asylum,  Natchez. 

1 81 7  St.  Mary's  female  orphan  asylum,  Baltimore. 
1 81 7    Roman  catholic  orphan  asylum.  New  York. 
1817    Poydras  female  orphan  asylum.  New  Orleans. 
1822    Association  for  the  care  of  colored  orphans, 

Philadelphia. 

1 824  Asylum  for  destitute  orphan  boys,  New  Orleans. 
1826    Roman  catholic  orphan  asylum,  Brooklyn. 

1828  Female  orphan  asylum,  Portland,  Me. 

1829  St.  John's  orphan  asylum,  R.  C,  Philadelphia. 

1830  Orphan  asylum,  Utica. 

1 83 1  St.  Vincent's  orphan  asylum,  R.  C,  Boston. 
1 83 1    Orphan  asylum,  Albany. 

1 83 1  St.  Vincent's  female  orphan  asylum,  R.  C, 
Washington. 

1 83 1    Leake  and  Watts  orphan  asylum,  New  York. 


LIST  OF  CHILDREN'S  CHARITIES  53 


1832  Farm  school  society,  Boston. 

1833  Orphan  asylum,  New  Haven. 
1833  Orphan  asylum,  Cincinnati. 

1833  Orphan  asylum  society,  Brooklyn. 

1833  Children's  friend  society,  Boston. 

1833  Infant  school  and  children's  home  association 
(now  the  Hunt  asylum  for  destitute  children),  Boston. 

1834  St.  John's  female  orphan  asylum,  R.  C,  Utica. 

1835  Children's  friend  society.  Providence. 

1835  Society  for  half-orphan  and  destitute  children, 
New  York. 

1835  Orphan  asylum,  Troy,  K  tj  . 

1835  Nickerson  home  for  children,  Boston. 

1836  Orphan  asylum,  Buffalo. 

1836  Colored  orphan  asylum.  New  York. 

1837  Foster  home  association,  Philadelphia. 

1837  St.  Aloysius  orphan  asylum,  R.  C,  Bond  Hill, 
Ohio. 

1838  Catholic  male  orphan  asylum,  Mobile. 
1838  Shelter  for  colored  children.  Providence. 

1838  Orphan  asylum,  Rochester. 

1839  Protestant  orphan  asylum.  Mobile. 

1839  Children's  home,  Bangor,  Me. 

1840  St.  Vincent  de  Paul  male  orphan  asylum, 
Baltimore. 

1840  Christ  church  asylum  for  female  children,  Bal- 
timore. 

1 841  Southern  home  for  destitute  children,  Phila- 
delphia. 

1843  New  orphan  asylum  for  colored  youths,  Avon- 
dale,  Ohio. 

1844  Male  orphan  asylum,  Richmond,  Va. 

1845  St.  Mary's  home,  R.  C,  Savannah. 
1845  St.  Peter's  asylum,  P.  E.,  Baltimore. 


54  PRIVATE  CHARITIES  TO  1875 


1845  Onondaga  county  orphan  asylum,  Syracuse. 

1845  St.  Patrick's  orphan  asylum,  R.  C,  Rochester. 

1845  Protestant  orphan  asylum,  Nashville. 

1845  St.  Vincent's  orphan  asylum,  R.  C,  Albany. 

1845  Manual  labor  school  for  indigent  boys,  Balti- 
more. 

1846  Hudson  orphan  and  relief  association,  Hudson, 
N.  Y. 

1846  Institution  of  mercy,  R.  C,  New  York. 

1846  Society  for  the  relief  of  destitute  children  of 
seamen,  New  York. 

1847  Temporary  home  for  the  destitute  (now  the 
Gwynne  temporary  home  for  children),  Boston. 

1847  Orphan  house,  Poughkeepsie,  N.Y. 

1847  St.  Mary's  orphan  asylum,  R.  C,  Natchez. 

1848  Protestant  foster  home,  Newark. 
1848  Orphan  asylum,  Newark. 

1848  Jefferson  county  orphan  asylum,  Watertown, 
N.  Y. 

1848  St.  Vincent's  female  orphan  asylum,  R.  C, 
Buffalo. 

1848  St.  Patrick's  orphan  asylum,  R.  C,  Baltimore. 

1848  Protestant  home  for  orphan  girls,  Baton 
Rouge. 

1848  Children's  friend  society,  Worcester. 

1849  Children's  mission  to  children  of  the  destitute, 
Boston. 

1849  German  protestant  orphan  asylum,  Cincinnati. 

1849  St.  Joseph's  male  orphan  asylum,  R.  C,  Buf- 
falo. 

1849  Orphan  asylum,  Chicago. 

1849  Kentucky  female  orphan  asylum,  Midway,  Ky^ 

1850  St.  Vincent's  asylum,  R.  C,  San  Rafael,  Cal. 
1850  Five  Points  house  of  industry,  New  York. 


TYPES  OF  INSTITUTIONS  55 


The  various  periods  may  be  grouped  as 
follows : 

Founded  prior  to  180 1  6 
"  1801  "  1811  2 
"  1811  "  1821  7 
"  1821  "  1831  6 
"  1831  "  1841  26 
"  1 841  "  1 85 1  30 
77 

New  York  early  began  to  show  a  tendency 
to  multiply  institutions,  under  the  influence 
of  aid  from  the  public  treasury.    With  one 
seventh  of  the  population  of  the  country,  the 
state  included  two  sevenths  of  the  institutions 
founded  prior  to  185 1.    It  is  not  possible  to 
trace  the  establishment  of  children's  institu- 
tions after  1850  in  detail.    It  may  be  stated  After  1850, 
that  everywhere  they  increased  in  numbers  ^^stitu- 
and  in  diversity  of  character  and  objects,  creased 
Not  including  some  central  and  western  states,  rapidly, 
from  which  returns  have  not  been  received, 
forty-seven  new  institutions  were  organized 
in  the  fifties,  seventy-nine  in  the  sixties  (not- 
withstanding the  civil  war),  and  twenty-one 
in  the  first  half  of  the  seventies. 

In  the  list  of  children's  charities  founded 
prior  to  1850,  there  are  several  different  types  j^^^^^^^ 
of  institutions.    One  type  was  that  founded  tions. 
by  a  group  of  people  who  were  not  neces- 


56  PRIVATE  CHARITIES  TO  1875 


sarily  associated  in  any  other  organization, 
and  whose  activities  in  this  direction  seemed 
to  be  prompted  solely  by  philanthropic  im- 
pulses.   Usually,  however,  it  happened  that 
these  persons  either  were  members  of  prot- 
estant  churches  or  of  none.    Some  form  of 
Theunde-  religious  observance,  undenominational,  but 
tiond^as    ^oi^-catholic,  was  usually  provided  for  the 
distin-       children.    In  name,  organization,  and  man- 
guished      agcmcnt  the  institution  was  not  connected 
^^^^        with  any  church  organization.    This  type, 
well    represented   by  the   orphan  asylum 
societies,   would   usually  regard   itself  as 
non-sectarian,  but  by  members  of  other  than 
protestant  churches  it  would  be  called  sec- 
tarian and  protestant.    Another  type  was  the 
the  dis-      orphan  asylum  organized  as  a  distinctively 
tmctively    religious  institution,  largely  under  the  control 

religious  _  - 

institution,  the  church  authorities,  and  usually  under 
the  immediate  management  of  the  religious 
orders. 

Each  form  of  organization  has  its  peculiar 
merits  and  its  disadvantages,  but  the  reader 
who  overlooks  the  difference  between  the 
two  points  of  view  above  set  forth  will  fail  to 
understand  some  of  the  most  powerful  influ- 
ences in  the  development  of  child-saving 
agencies  in  the  United  States. 

A  third  type  of  institution  appeared  later, 


GIRARD  COLLEGE 


57 


the  endowed  orphan  asylum,  established 
usually  by  a  bequest,  and  managed  as  a  trust  Endowed 
by  a  board  of  directors.  Such  were  the  ^^y^^"^^- 
Poydras  female  orphan  asylum  in  New 
Orleans,  the  Leake  and  Watts  orphan 
asylum  in  New  York,  Girard  college  in 
Philadelphia,  the  McDonough  school  near 
Baltimore,  and  many  others.  Among  these, 
Girard  college  is  worthy  of  special  mention. 

Stephen  Girard  died  in  1831,  leaving  prop- 
erty, then  worth  about  ^6,000,000,  for  the 
establishment  of  a  college  for  orphans.  Evi- 
dently he  had  both  charitable  and  educational 
objects  in  mind,  for  in  his  will  he  specified 
that,  **As  many  poor  white  male  orphans 
between  the  ages  of  six  and  ten  years  as  the  Girard 
said  income  shall  be  adequate  to  maintain  college, 
shall  be  introduced  into  the  college  as  soon 
as  possible.''  The  term  male  orphan  has 
been  construed  to  mean  any  fatherless  boy 
whose  mother  has  not  remarried.  It  was  Mr. 
Girard's  wish  that  boys  who  proved  worthy 
should  be  kept  until  at  least  fourteen  years  of 
age,  but  not  after  reaching  the  age  of  eighteen. 
Unruly  boys  were  to  be  dismissed.  Buildings 
costing  nearly  $3,000,000  were  completed 
in  1847.  The  endowment  has  greatly  in- 
creased in  value,  the  present  value  of  the 
property  of  the  institution  being  estimated 


58  PRIVATE  CHARITIES  TO  1875 

at  1^24,000, ')00,  and  yielding  an  annual  net 
income  of  nearly  $1,000,000.  The  institution 
opened  with  100  boys  on  January  i,  1848, 
and  the  number  steadily  increased  until  on 
December  31,  1900,  there  were  1481  pupils. 
The  boys  are  taught  all  branches  that  are 
suitable  for  children  of  their  ages.  It  is,  of 
course,  not  a  college  in  the  usual  sense  of  the 
term,  but  is  intended  to  fit  boys  for  commer- 
cial and  mechanical  pursuits.  The  estate, 
which  was  left  to  the  care  of  the  mayor, 
aldermen,  and  citizens  of  Philadelphia,  is 
administered  by  the  board  of  city  trusts, 
appointed  by  the  supreme  court  of  Pennsyl- 
vania and  the  city  courts  of  Philadelphia. 
The  grounds  are  surrounded  by  a  high  stone 
wall,  and  in  many  respects,  notwithstanding 
the  beauty  of  the  buildings  and  environs,  the 
college  has  a  decidedly  institutional  appear- 
ance. The  class  of  boys  received  includes 
many  who  otherwise  would  probably  be  ad- 
mitted to  orphan  asylums  and  such  institu- 
tions, with  a  proportion  of  those  whose  par- 
ents are  in  somewhat  better  circumstances. 

Its  beneficence  is  not  to  be  doubted ;  but 
when  it  is  remembered  that  this  institution 
has  a  larger  endowment  than  any  university 
in  the  land,  it  is  to  be  questioned  whether  its 
founder  did  wisely  in  yoking  together  free 


CARE  FOR  SPECIAL  CLASSES  59 


education  and  free  maintenance.    As  an  edu- 
cational agency,  even  if  it  were  to  give  the 
same  sort  of  education  as  at  present,  it  cer- 
tainly could  reach  a  very  much  larger  num-  an  exam- 
ber  who  need  such  instruction  if  it  were  simply  °/ 

11  disadvan- 

a  series  of  day  schools.    On  the  other  hand,  tage  of 
solely  as  a  charity  it  could  be  much  more  combining 
effective  if  freed  from  the  restrictions  im-  ^f^^^^.^^^" 

tion  with 

posed  by  the  will,  in  the  effort  to  make  the  free  main- 
proposed  "college"  an  educational  institu-  tenance. 
tion.  On  the  whole,  it  is  to  be  feared  that 
the  name  of  its  founder  must  be  added  to  the 
already  long  list  of  those  who  have  erred  in 
trying  to  foresee  the  social  needs  of  the 
future,  and  have  tied  up  vast  estates  to  uses 
which  soon  fail  to  meet  the  serious  needs  of 
the  community.  Girard  college  is  the  largest 
and  most  important  endowed  children's  insti- 
tution in  the  United  States,  and  probably  in 
the  world,  but  the  example  of  Stephen  Girard 
is  not  one  to  be  followed  by  wise  philan- 
thropists. 

Institutions  for  special  classes  of  children 
also  appeared.    The  Philadelphia  association 
for  the  care  of  colored  orphans  was  organized  Institu- 
by  the  society  of  friends  in  1822,  and  was  fol-  ^1°^^.^°^ 

•'  special 

lowed  by  similar  institutions  in  Providence  in  classes. 
1835,  in  New  York  in  1836,  in  Avondale,  near 
Cincinnati,  in  1843,  a  second  in  Philadelphia 


60  PRIVATE  CHARITIES  TO  1875 


in  1855,  and  one  in  Brooklyn  in  1866.  Boston 
established  no  separate  institutions  for  colored 
children,  but  it  is  likely  that  then,  as  now, 
both  colored  and  white  children  were  received 
in  many  of  her  asylums.  The  institutions  for 
colored  children  appeared  in  those  localities 
in  which  the  influence  of  the  quakers,  or 
friends,  was  strong. 

About  1845  a  day  school,  estabHshed  by 
the  society  of  friends  for  the  children  on  the 
Cattaraugus  Indian  reservation  near  Buffalo, 
was  reorganized  as  an  asylum  for  orphan  and 
destitute  Indian  children.  For  ten  years  it 
was  supported  by  voluntary  contributions, 
but  from  1855  it  received  subsidies  from  the 
state.  When  state  subsidies  were  aboUshed 
in  1875,  it  was  reorganized  as  a  state  institu- 
tion, and  is  to-day  the  only  state  institution  in 
New  York  for  the  care  of  destitute  children. 

Another  institution  for  a  special  class  of 
inmates  was  the  home  for  children  of  desti- 
tute seamen  in  the  city  and  port  of  New 
York,  established  on  Staten  Island  in  1846. 

In  founding  children's  institutions  of  a  dis- 
tinctly religious  character,  the  catholics  eas- 
The  relig-  jiy  took  the  lead.  Of  the  seventy-seven 
tutk^nT^^"  institutions  established  prior  to  1851,  twenty- 
one  were  under  catholic  auspices.  In  the 
fifties,  a  number  of  new  institutions  were 


RELIGIOUS  IiTSTITUTIONS  6l 


added  to  the  list  of  those  under  th''.  auspices 
of  the  protestant  episcopal  church  —  the 
orphans'  home  and  asylum  of  the  protestant 
episcopal  church  in  New  York  city,  in  185 1, 
the  church  charity  foundation  of  Long 
Island,  in  the  same  year,  the  charity  founda- 
tion of  the  protestant  episcopal  church  in  among 
the  city  of  Buffalo,  in  1858,  the  church  home  ^hic^  the 

.  .  catholic 

for  orphan  and  destitute  children  in  Boston,  predomi- 
in  1855,  the  church  home  for  children  in  nated. 
Philadelphia,  in  1856.  The  Lutherans  es- 
tabUshed  the  Lutheran  orphan  home  in  Phila- 
delphia in  1859,  the  evangeHcal  Lutheran  St. 
John's  orphan  home  in  Buffalo  in  1864,  the 
Wartburg  farm  school  in  New  York  city  in 
1866,  and  the  Martin  Luther  orphan  home 
in  Boston  in  1871. 

The  first  Jewish  institution  for  children 
was  probably  the  Jewish  orphans'  home  in 
New  Orleans,  established  in  1856.  This  was 
followed  by  the  Jewish  foster  home  in  Phila- 
delphia in  the  same  year,  the  New  York  He- 
brew orphan  asylum  in  i860,  the  orphans' 
guardians  society  in  Philadelphia  in  1863,  the 
Pacific  Hebrew  orphan  asylum  in  San  Fran- 
cisco in  1870,  the  Hebrew  orphan  asylum  in 
Baltimore  in  1872,  and  others. 

In  185 1  a  new  type  of  institution  appeared, 
in  the  New  York  juvenile  asylum,  organized 


62  PRIVATE  CHARITIES  TO  1875 


through  the  efforts  of  the  association  for  im- 
TheNew  proving  the  condition  of  the  poor,  as  the 
Yorkjuve-  hQ^se  of  refuge  had  been  organized  a  quar- 

mle  asy-  ,    r       ^       1  •        r  1 

lum,  ter  of  a  century  before  by  the  society  for  the 
receiving  prevention  of  pauperism.  The  juvenile  asy- 
tute^and^^'  aimed  to  receive,  not  simply  destitute 

delinquent  children,  but  also  children  who  were  neg- 
children.  lectcd  and  in  danger  of  moral  ruin,  and  way- 
ward children.  It  received  children  upon 
surrender  by  parents,  and  also  upon  commit- 
ment by  the  courts.  It  combined,  in  our 
opinion  unfortunately,  the  functions  of  a 
home  for  destitute  children,  a  training  school 
for  neglected  children,  and  a  juvenile  reform- 
atory. From  the  first  it  received  substantial 
aid  from  public  funds,  both  city  and  state. 

Institutions   for   infants,  combining  the 
functions  of  maternity  hospitals,  infants'  hos- 
pitals, and  foundling  asylums,  appeared  in 
the  fifties.    St.  Mary's  asylum  in  Buffalo  for 
Infants  a    widows,  foundlings,  and  infants  was  incor- 

^^cTofcare  P^^^^^^      ^^5^'  begin  work  until 

after  1850.  somewhat  later.  The  nursery  and  child's 
hospital  was  established  in  New  York  city  in 
1854,  and  the  New  York  infant  asylum  in 
1865.  The  Massachusetts  infant  asylum  was 
organized  in  1867,  the  foundling  asylum  of 
the  sisters  of  charity  in  New  York  in  1869, 
and  the  Philadelphia  home  for  infants  in 


INFANTS 


63 


1 871.    Finding  the  mortality  among  babies 
cared  for  in  institutions  in  cities  very  high, 
these  institutions  either  established  country 
branches,  or  placed  the  younger  children  at 
board  in  famiUes.    The  sisters  of  charity  in  Many  of 
New  York,  the  Massachusetts  infant  asylum,  ^^^^^  ^ 
and  the  nursery  and  child's  hospital  adopted  ^^^^ 
the  latter  plan,  and  the  first  and  second  still 
continue  its  use  for  large  numbers  of  their 
children.    The  New  York  infant  asylum  and 
the  nursery  and  child's  hospital  have  each 
established  country  branches,  one  in  West- 
chester county  and  one  on  Staten  Island. 

Temporary  homes  for  children,  as  distin- 
guished from  orphan  asylums  in  which  the 
residence  was  more  permanent,  were  estab-  Temporary 
lished  in  Boston  in  1847,  '^^  Philadelphia 
in  1856.  The  sheltering  arms,  established  in 
New  York  city  in  1864,  was  designed  espe- 
cially for  children  of  whom  one  or  both  parents 
are  living,  and  are  able  to  contribute  toward 
the  children's  support. 

In  1863  the  New  York_catholic  protectory 
was  organized  somewhat  on  the  lines  of  the 
New  York  juvenile  asylum.    It  received  both  The  New 
boys  and  girls  of  all  ages  from  two  to  sixteen  ^^^jj^, 
years,  and  all  classes  of  destitute,  neglected,  protectory, 
and  delinquent  children.   It  received  substan- 
tial aid  from  the  city  and  the  state  for  the  erec- 


64 


PRIVATE  CHARITIES  TO  1875 


tion  of  buildings,  and  the  cost  of  maintenance 
was,  from  the  first,  borne  largely,  and  in  later 
years  wholly,  by  the  city  through  a  per  capita 
grant  made  under  a  mandate  of  the  state 
legislature.  This  institution  grew  with  great 
rapidity,  having  1944  inmates  on  October 
I,  187s,  and  has  since  become  the  largest 
children's  institution  in  the  United  States,  if 
not  in  the  world.  A  similar  institution,  but 
receiving  boys  only,  was  established  near 
Buffalo  in  1864. 

Most  of  the  above-mentioned  agencies  made 
more  or  less  use  of  indenture,  adoption,  or 
placing  out  of  children.  Many  of  the  orphan 
asylums  adopted  a  rule  that  boys  should  be 
bound  out  at  the  age  of  twelve  and  girls  at 
the  age  of  fourteen.  In  the  earlier  history 
of  Girard  college  many  boys,  upon  leaving 
the  institution,  were  bound  out  to  farmers. 
As  a  rule,  the  orphan  asylums  seemed  to 
regard  the  placing-out  system  rather  as  a 
convenient  means  of  disposing  of  their  older 
wards  than  as  an  essential  part  of  the  plan 
by  which  they  were  to  benefit  homeless  chil- 
dren. There  is  little  evidence  of  any  ade- 
quate inquiry  into  the  circumstances  of  the 
persons  receiving  children,  or  of  any  system 
of  subsequent  oversight.  The  children,  after 
leaving  the  doors  of  the  institution,  were  in 


DISPOSAL  OF  INMATES 


65 


too  large  measure  lost  sight  of.    A  few  of  Piaced-out 
the  institutions,  however,  laid  great  stress  children 
upon  the  placing  of  orphan  and  permanently  fost^sight^ 
deserted  children  in  families,  and  developed  of. 
more  or  less  satisfactory  plans  for  finding 
homes  for  large  numbers  of  children.  Among 
such  were  the  New  York  juvenile  asylum 
(1851),  the  New  England  home  for  little 
wanderers  (1865),  and  the  New  York  found- 
ling asylum  (1869),  all  of  which  sent  numbers 
of  children  to  homes  in  the  western  states. 
At  the  date  of  the  establishment  of  many  of  Detention 
the  orphan  asylums  there  was  more  reason  mstitu- 
for  retaining  children  for  considerable  periods  educa- 
of  time  than  in  later  years.    The  public^school  tional  pur- 
systems  had  not  yet  been  adopted,  and  it 
seemed  necessary,  in  order  to  secure  the 
proper  education  of  orphan  children,  that 
they  should  be  collected  in  institutions.    With  became 
the  establishment  of  public-school  systems  ^^^^  neces- 

-  ,  ,  1     .      1      sary  with 

and  compulsory  attendance,  not  only  m  the  the  advent 
cities,  but  throughout  the  rural  districts,  this  of  com- 
necessity  disappeared,  though  many  institu-  ^^^^Q^^at 
tions  failed  to  recognize  the  changed  condi-  tendance, 
tions  under  which  their  work  was  carried  on. 
This  perhaps  contributed  to  the  fact  that  a 
new  type  of  organization  appeared. 

Societies  known  as  children's  aid  societies 
were  organized  in  New  York  in  1853,  Balti- 


66  PRIVATE  CHARITIES  TO  1875 


Organiza-  more  in  i860,  Boston  in  1865,  Brooklyn  in 

chUdrL's  Buffalo  in  1872,  and  Philadelphia  in  1882. 

aid  socie-  The  New  York  society,  organized  through 

ties,  for  the  efforts  of  the  late  Rev.  Charles  Loring 

the  direct  g^^^^                addressed  itself  to  the  im- 

placing  m  -'^^ 

families  of  provement  of  the  condition  of  the  poor  chil- 
destitute  dren  in  New  York  in  many  ways :  through 
^  ^  the  establishment  of  lodging-houses  for  news- 

boys and  other  homeless  children ;  by  day 
and  evening  schools  for  children  who  were 
not  reached  by  the  public-school  system ;  by 
reading-rooms  and  religious  meetings;  and 
by  sending  homeless  children  to  families  in 
the  country.  The  last  of  these  plans  is  the 
only  one  which  comes  directly  within  the 
scope  of  this  volume.  This  plan  was,  in 
brief,  to  send  homeless  children  in  groups 
of  from  twenty  to  forty  to  some  point  in 
the  western  states,  where  arrangements  had 
been  made  for  holding  a  large  public  meet- 
ing on  the  date  of  the  arrival  of  the  children. 
At  this  meeting  the  work  of  the  society  was 
explained,  and  people  were  urged  to  receive 
these  friendless  children  into  their  hearts 
and  homes.  A  local  committee  had  been 
appointed  to  pass  upon  applications,  and  to 
see  that  none  but  respectable  people,  able 
to  give  good  homes  to  children,  received 
them. 


CHILDREN'S  AID  SOCIETIES  67 

In  several  important  respects  this  plan  The  new 
differed  from  previous  methods  of  placinsr  "^^thodof 

1  M  1         11-  -1  T  placing 

out  children  by  adoption  or  indenture.    In  ^jjf. 

selecting  the  territory  offering  the  best  op-  fered  ma- 
portunities  for  young  people,  even  though 

at  great  distances  from  New  York  city,  in  indenture 

appealing  to  the  humanity  of  the  country  plan, 
people  rather  than  to  their  business  instincts, 
in  taking  the  young  children  rather  than  the 

older  ones,  and  in  boldly  asserting  that  the  Normal 

ordinary  experiences  of  life  in  an  ordinary  ^^^^  ^^^^ 
family  are  a  better  preparation  for  self-  superior 

support  and  self-guidance  than  institutional  education- 

traininsf, — in  these,  and  in  other  respects,  f-^^y^^^^^ 

1      .  ,    .      .        r      .  institution. 

the  work  challenges  our  admiration,  for  its 
boldness,  its  appreciation  of  the  value  of 
normal  social  forces,  and  its  comprehen- 
siveness. Thg  children  were  received  from 
the  newsboys'  lodging-houses,  from  orphan 
and  infant  asylums,  from  almshouses,  and 
directly  from  parents.  The  results  have  un-  Results  of 
doubtedly  justified  the  bold  plans  and  large  ^^^^ 
hopes  of  its  founders.  While  it  might  be 
desired  that  fuller  records  had  been  kept  and 
a  more  rigid  supervision  followed,  there  is 
satisfactory  evidence  that  a  very  large  pro- 
portion of  the  children  sent  out  have  become 
integral  and  useful  parts  of  the  growing  west- 
ern communities.    A  number  have  attained 


68  PRIVATE  CHARITIES  TO  1875 

considerable  eminence  in  the  professions; 
several  have  held  important  positions  of  pub- 
lic trust,  one  became  governor  of  a  territory, 
and  one,  governor  of  a  state.  We  shall  allude 
later  to  the  work  of  the  society  after  1875.  The 
statistics  of  children  placed  out  have  only  re- 
cently been  separated  from  those  of  families 
for  whom  transportation  to  a  rural  point  was 
given,  and  for  older  boys  for  whose  employ- 
ment work  was  provided  near  New  York 
city.  The  number  placed  in  families  aver- 
aged almost  exactly  one  thousand  per  year 
for  the  twenty  years  1854-1875.  Itis  probably 
riot  too  much  to  say  that  this  work  affected 
the  child  problem  of  New  York  city,  for  the 
twenty  years  prior  to  1875,  more  strongly  and 
beneficently  than  any  other  one  factor. 

An  interesting  though  not  extensive  work 
is  that  of  the  orphans'  guardians  of  Phila- 
delphia (1863).  The  object  of  this  society 
is  to  rear  and  educate  Hebrew  orphans  by 
boarding  them  with  a  relative,  or  with  some 
other  worthy  family,  a  member  of  the  board 
of  directors  becoming  the  legal  guardian  of 
the  child. 

The  children's  aid  society  of  Baltimore 
Baltimore,  was  founded  in  i860  for  the  purpose  of  find- 
ing homes  for  destitute  children.  Ninety- 
eight  children  were  placed  in  families  during 


CHILDREN'S  AID  SOCIETIES  69 


the  first  year.  At  first,  only  children  from 
ten  to  fifteen  years  of  age  were  received. 
Many  of  the  children  were  received  from 
the  courts  and  magistrates,  and  on  the 
ground  that  it  was  an  important  adjunct  to 
the  police  department,''  the  city  council  ap- 
propriated to  the  society  from  ;^500  to  ;^iooo 
annually;  the  remainder  was  received  from 
private  contributions.  In  1871  Mr.  Henry 
Watson  bequeathed  $100,000  to  the  society, 
which  thereafter  was  known  as  the  Henry 
Watson  children's  aid  society.  No  further 
contributions  of  public  or  private  funds  were 
solicited  for  some  years.  The  placing-out 
work  was  not  largely  increased,  but  a  sew- 
ing school,  a  boarding  home  for  working 
girls,  and  a  lodging-house  for  adults  and 
children  were  established. 

The  Boston   children's   aid   society  was 
organized  in  1863.    Its  purpose,  according 
to  the  act  of  incorporation  of  1865,  was  that  Evolution 
of  "  providing  temporary  homes  for  vagrant,  of^heBos 
destitute,  and  exposed  children,  and  those  ety. 
under  criminal  prosecution,  of  tender  age,  in 
Boston  and  its  vicinity,  and  of  providing  for 
them  such  other  or  further  relief  as  may  be 
advisable  to  rescue  them  from  moral  ruin." 
Apparently,  the  founders  of  the  society  were 
not  quite  clear  as  to  just  how  they  would 


70  PRIVATE  CHARITIES  TO  1875 


care  for  their  children.  Section  4  of  the 
charter  provided,  with  admirable  caution, 
that  "  The  directors  shall  have  authority,  at 
their  discretion,  to  receive  into  their  asylum 
or  care  such  children  of  tender  age  as  they 
may  deem  suitable  objects  of  the  charity 
intended  by  this  institution/'  The  directors 
were  also  given  power  to  bind  out  children 
"in  virtuous  families,"  and  to  consent  to 
Its  farm  their  adoption.  The  first  work  of  the  soci- 
schools,  or         ^g^g         establishment  of  a  temporary 

temporary    ,  .       ,  ,  -r^.  r 

homes.      home  m  the  country  known  as  rme  farm. 

The  first  annual  report  of  the  society  is 
largely  a  description  of  this  farm  school, 
although  the  sentiment  is  expressed  several 
times  that  it  is  the  purpose  of  the  society  to 
maintain  an  oversight  and  influence  over 
the  boys  after  they  leave  the  farm.  Fifty- 
two  boys  were  received  the  first  year,  and 
twenty-three  were  discharged,  of  whom  eight 
were  placed  in  families  in  the  country.  In 
the  third  annual  report  of  the  society,  we 
find  the  sentiment  expressed  by  those  in 
charge  of  the  farm  school  that  it  is  difficult 
to  find  places  in  families  for  the  younger 
boys.  The  wish  is  expressed  that  the  soci- 
ety would  authorize  us  to  try  the  plan  of 
paying  moderate  board  in  families  in  which 
we  can  trust  them,  and  thus  enable  us  to 


CHILDREN'S  AID  SOCIETIES  7 1 


benefit  a  larger  number/'  The  reports  of  the 
society  prior  to  1875  tell  interestingly  of  the 
work  of  an  admirable  temporary  home  or 
training-school  in  the  country,  but  give  com- 
paratively little  promise  of  the  splendid  de- 
velopment of  preventive  work  and  of  boarding 
out  and  placing  out  carried  on  by  the  society 
in  more  recent  years. 

The  children's  aid  societies  organized  in 
Brooklyn  in  1866,  and  in  Buffalo  in  1872, 
devoted  their  energies  rather  to  the  mainte- 
nance of  lodging-houses,  newsboys'  homes, 
and  industrial  schools,  than  to  the  placing 
out  of  children.  The  beneficent  work  of  the 
children's  aid  society  of  Pennsylvania  was 
not  begun  until  1882,  and  will  be  treated  of 
in  a  subsequent  chapter,  as  also  will  be  that 
of  the  children's  home  societies. 


CHAPTER  IV 


REMOVAL  OF  CHILDREN  FROM  ALMSHOUSES 

Historical  sources:  "The  removal  of  children  from 
almshouses,"  by  Homer  Folks,  Lend-a-Hand,  September, 
1894  (J.  Stillman  Smith  &  Co.,  Boston).  Report  of  special 
commissioners  to  examine  the  penal,  reformatory,  and  char- 
itable institutions  of  the  state  of  Michigan,  and  the  methods 
of  caring  for  such  children  in  other  states  (Volume  ii  of 
joint  documents  of  1870,  state  printer,  Lansing,  Mich.). 
Reports  of  New  York  state  board  of  charities,  1867-1876. 
Pauper  children  in  poorhouses  and  almshouses  in  the  state 
of  New  York :  extracts  from  proceedings  of  boards  of  county 
supervisors,  etc.,  1 861-1874  (20  pp.,  library  of  state  chari- 
ties aid  association.  New  York).  Report  of  the  commission 
on  the  number  and  condition  of  dependent  and  neglected 
children  in  the  state  of  Connecticut,  January,  1883  (Tuttle, 
Morehouse,  &  Taylor,  Hartford). 

In  tracing  the  public  care  of  children  from 
1 80 1  to  1875,  we  noted  the  scathing  arraign- 
ment of  the  care  of  children  in  almshouses 
by  the  select  committee  of  the  New  York 
senate  in  1856.    From  that  time  the  convic- 
tion spread  that  the  collection  of  children  in 
Laws  ex-    almshouses  had  been  a  serious  mistake.  Ten 
^h*ki^^      years  later,  the  first  of  a  series  of  laws  for 
from  alms-        removal  of  children  from  almshouses  was 
houses.      passed.    In  some  cases  a  different  system  of 

72 


OHIO;  MASSACHUSETTS 


73 


caring  for  children  who  were  public  charges 
was  created ;  in  other  states,  laws  were  passed 
prohibiting  the  sending  of  children  to  alms- 
houses, or  their  retention  therein  for  longer 
than  a  certain  period,  usually  thirty,  sixty,  or 
ninety  days,  leaving  the  local  authorities  to 
make  such  other  provision  for  the  children 
as  they  might  elect.  In  briefest  outline,  these 
laws  were  as  follows  : 

In  1866  Ohio  passed  a  law  authorizing 
the  establishment  of  county  children's  homes, 
after  a  favorable  vote  by  the  people  in  each 
case,  to  be  Supported  by  taxation  and  man-  ohio  sub- 
aged  by  boards  of  trustees  appointed  by  the  stitutes 
county  commissioners.  Three  such  homes  homes, 
were  established  between  1866  and  1870,  six 
during  the  decade  1 870-1 880,  thirty-three 
between  1880  and  1890,  and  six  since  1890. 
In  1883  a  supplementary  law  was  passed  pro- 
hibiting the  retention  of  children  over  three 
years  of  age  in  poorhouses,  unless  separated 
from  the  adult  paupers.  For  many  years  the 
enforcement  of  the  law  was  extremely  inade- 
quate, as  there  was  no  penalty  for  its  violation. 
In  1898  the  age  to  which  children  may  be 
kept  in  almshouses  was  reduced  from  three 
years  to  one  year. 

Massachusetts  abolished  the  almshouse  de-  Massachu- 
partment  at  the  state  primary  school  at  Mon-  ^^"^ 


74  REMOVAL  FROM  ALMSHOUSES 


son  in  1872,  and  thus  separated  destitute 
children  from  adults,  so  far  as  state  charges 
establishes  were  concerned.  In  1879  ^  was  passed 
school  requiring  overseers  of  the  poor  of  cities  to 
for  state  place  destitute  children  over  four  years  of 
charges,  age  in  families  or  asylums  and  provide  for 
and  re-      their  maintenance.    In  1887  it  was  provided 

quires  the  '  ^ 

placing  of  that  whenever  the  overseers  of  any  city,  ex- 
local  de-     cept  Boston,  failed  to  comply  with  this  law, 
fr^asylums        State  board  of  lunacy  and  charity  should 
or  families,  provide  for  the  children  at  the  expense  of 
such  cities.    In  1893  the  laws  of  1879  and 
1887  were  amended  so  as  to  relate  to  towns 
as  well  as  cities. 

Michigan  was  the  first  state  to  treat  the 
matter  in  a  really  comprehensive,  effective 
manner.    In  1869  a  commission,  appointed 
The         by  the  governor,  made  an  exhaustive  inquiry 
Michigan    -^^^  ^j^^  Condition  of  children  in  the  county 

system, 

poorhouses,  and  the  methods  of  caring  for 
such  children  in  other  states.  The  report  of 
,  the  commission,  submitted  in  1870,  stated 
that  there  were  over  200  children  under  six- 
teen years  of  age  in  poorhouses  in  Michigan. 
The  degrading  influences  of  such^  surround- 
ings were  pointed  out,  and  action  for  the 
removal  of  the  children  was  suggested.  The 
commission  suggested  the  adoption  of  one  of 
three  plans :  first,  a  state  placing-out  agency 


MICHIGAN ;  NEW  YORK 


75 


by  which  dependent  children  should  be  re- 
moved from  the  county  poorhouses  and  placed  combining 
directly  in  private  famiUes;  second,  the  re-  astatepub- 
moval  of  the  children  to  private  orphan  ^^^^ 
asylums,  to  be  supported  therein  at  state  prompt 
expense  until  placed  in  families;  third,  the  P^^^i^S 
establishment  of  a  state  primary  school  "  after 
the  plan  of  that  at  Monson,  Mass/'  The 
commission,  while  declaring  itself  strongly 
opposed  to  institutional  life,  favored  the  sec- 
ond plan  as  the  best  provision  for  the  tem- 
porary care  of  the  children.    It  also  urged 
the  importance  of  supervision  of  adopted  or 
indentured  children.    The  legislature  proved 
to  be  more  radical  than  the  commission.  It 
disregarded  the  many  requests  that  were 
made  for  state  aid  to  private  institutions, 
and  passed  a  law  creating  a  state  public 
school  for  dependent  children,  to  which  all 
destitute  children  in  the  state  who  were  pub- 
lic charges  were  to  be  removed,  and  from 
which  they  were  to  be  placed  out  in  families 
as  soon  as  possible.     The  institution  was 
opened  at  Coldwater,  in  May,  1874. 

In  1875  a  law  was  enacted  in  New  York,  In  New 
through  the  efforts  of  the  state  board  of 
charities,  supported  by  the  state  charities  aid 
association  and  others,  requiring  the  removal 
of  all  children  over  three  years  of  age,  not 


76  REMOVAL  FROM  ALMSHOUSES 


in  the  ab- 
sence of 
proper 
placing- 
out  ma- 
chinery, 


transfer 
was  mainly 
to  private 
asylums, 
where  the 
children 
were  sup- 
ported at 
public  ex- 
pense. 


defective  in  body  or  mind,  from  poorhouses, 
and  directing  that  they  be  placed  in  families, 
orphan  asylums,  or  other  appropriate  institu- 
tions, and  that  the  public  authorities  make 
provision  for  their  maintenance.  This  legis- 
lation was  the  culmination  of  a  movement  ex- 
tending over  some  eight  years.  The  state 
board  of  charities,  created  in  1867,  found,  on 
its  first  examination  of  the  almshouses  of  the 
state  in  1868,  2231  children  in  these  institu- 
tions, 1222  being  in  county  poorhouses  and 
1009  in  the  children's  departments  of  the 
almshouses  of  New  York  city  and  Brooklyn. 
Efforts  were  made  by  this  board  and  by  other 
public-spirited  citizens  to  induce  the  county 
boards  of  supervisors  to  make  other  provision 
for  the  children,  either  by  placing  them  in 
families  or  by  sending  them  to  children's 
homes  and  paying  their  board.  In  some 
counties  many  of  the  children  were,  by  one 
or  both  of  these  methods,  removed  from  the 
poorhouses.  Nevertheless,  at  the  close  of 
1874  there  were  still  2066  children  in  alms-- 
houses.  The  number  in  county  poorhouses 
had  been  reduced  to  593,  but  in  New  York 
city  and  Brooklyn  it  had  risen  to  1473.  The 
law  of  1875  created  no  machinery  for  placing 
out  or  otherwise  providing  for  the  children. 
The  local  authorities  very  promptly  complied 


WISCONSIN;  PENNSYLVANIA  77 


with  the  law,  generally  by  placing  the  chil- 
dren in  orphan  asylums,  and  within  two  or 
three  years  the  plan  of  supporting  destitute 
children  at  public  expense  in  private  institu- 
tions became  the  settled  policy  of  the  state. 
In  1878  the  New  York  law  was  amended  by 
reducing  the  age  to  which  children  may  be  re- 
tained in  almshouses,  from  three  years  to  two 
years,  and  by  abolishing  the  exemption  of 
defective  children. 

In  1878  Wisconsin  passed  a  law  requiring 
the  removal  of  children  from  almshouses,  but  Wisconsin 

made  no  other  provision  for  them  until  seven 

^  Michigan. 

years  later,  when,  in  1885,  it  established  a  state 
public  school  for  dependent  children,  follow- 
ing closely  the  lines  of  the  Michigan  system. 

In  1883  Pennsylvania  enacted  a  law  pro- 
hibiting the  retention  of  children  between  the 
ages  of  two  and  sixteen  years,  unless  feeble-  pennsyl- 
minded  or  defective,  in  poorhouses  for  a  vania 
longer  period  than  sixty  days.    The  county  ^^j^pe^^by 
authorities,  being  left  to  make  such  provision  the  chil- 
for  their  children  as  they  might  choose,  Wren's  aid 
adopted  various  plans.     Most  of  the  larger 
counties  entered  into  cooperation  with  the 
children's  aid  society  of  Pennsylvania,  under 
whose  care  the  children  were  boarded  in 
families  at  the  expense  of  the  counties  until 
permanent  free  homes  were  found  for  them. 


society. 


78  REMOVAL  FROM  ALMSHOUSES 


Connecti- 
cut adopts 
county 
homes. 


Rhode 
Island,  a 
state 
school. 


Maryland, 
subsidies. 


New 

Hamp- 
shire, sub- 
sidies and 
placing 
out. 


In  1883  Connecticut  passed  a  law  directing 
the  establishment  of  a  temporary  home  for 
children  in  each  county,  and  prohibiting  the 
retention  of  children  over  two  years  of  age  in 
almshouses.  In  1895  a  penalty  for  non-com- 
pliance with  this  law  was  provided.  Unfortu- 
nately the  law  was  amended  in  1897,  so  as  to 
permit  the  retention  of  children  under  four 
years  of  age  in  almshouses. 

In  1885  Rhode  Island  established  a  state 
home  and  school  for  children,  and  in  1892 
made  mandatory  the  removal  of  all  children 
from  almshouses  to  the  state  home. 

In  1890  Maryland  passed  a  law  prohibiting 
the  retention  of  children  between  the  ages  of 
three  and  sixteen  years,  unless  mentally  de- 
fective, in  almshouses  for  a  longer  period 
than  ninety  days.  The  local  authorities,  as  a 
rule,  sent  the  children  to  private  institutions, 
paying  for  their  support. 

In  1895  New  Hampshire  prohibited  the 
retention  of  children  between  the  ages  of 
three  and  fifteen,  except  the  feeble-minded, 
in  almshouses  for  a  longer  period  than  thirty 
days.  The  overseers  of  the  poor  and  county 
commissioners  were  directed  to  place  such 
children  in  orphan  asylums  or  in  families. 
A  state  board  of  charities  was  charged  with 
the  duty  of  enforcing  this  law. 


OTHER  STATES 


79 


In  1897  Indiana  passed  a  law  prohibiting 
the  retention  of  children  between  the  ages 
of  three  and  seventeen  years  in  any  poor-  Indiana, 
house  after  January  i,  1898,  for  a  period  apiacmg- 
longer  than  ten  days  (made  sixty  days  by  agency, 
the  legislature  of  190 1).    A  state  placirig-out 
agency,  under  the  direction  of  the  state  board 
of  charities,  was  created  by  the  same  statute 
to  assist  and  promote  the  placing  out  of  chil- 
dren from  the  various  county  homes. 

In  1899  New  Jersey  created  a  state  board 
of  children's  guardians,  in  which  is  vested  the 
custody  of  all  children  who  become  public  New  jer- 
charges.    The  law  also  forbids  the  retention  ^^^^  t)oard- 
of  children  more  than  one  year  of  age  in  p^fcing 
almshouses  for  a  longer  period  than  thirty  out. 
days.    The  children  are  to  be  boarded  in  pri- 
vate families  until  permanent  homes  can  be 
found. 

The  delays  in  the  removal  of  children  from 
almshouses  is  a  lamentable  illustration  of  the 
slowness  with  which  such  reforms  proceed.  Only  these 
Thirty-five  years  have  passed  since  Ohio  en-  twelve 
acted  the  first  law  in  the  United  States  look-  f^^f^^. ^^^e 
ing  toward  the  removal  of  all  children  from  excluded 
almshouses,  but  as  yet  barely  a  dozen  states  ^^^^^^^^^^ 
—  about  one  fourth  of  the  whole  number —  houses, 
have  followed  her  example,  and  even  in  these 
states  the  laws  are  not,  in  all  cases,  fully  en- 


80  REMOVAL  FROM  ALMSHOUSES 


Perhaps 
5000  chil- 
dren now 
in  alms- 
houses, 


forced.  In  1897,  again  in  1899,  the  Illi- 
nois legislature  eliminated  from  pending  bills 
relating  to  the  care  of  children,  a  provision 
prohibiting  their  retention  in  almshouses. 
Connecticut,  as  noted  above,  took  a  backward 
step  in  1 897.  These  are  exceptions,  however, 
and  the  movement  has  steadily,  though  very 
slowly,  gained  in  momentum,  and  such  legis- 
lation will,  beyond  doubt,  become  more  gen- 
eral and  more  stringent  and  will  be  better 
enforced  as  the  years  pass. 

The  census  of  1880  showed  that  the  actual 
number  of  children  in  almshouses  between 
two  and  sixteen  years  of  age,  in  the  United 
States,  was  7770.  The  earlier  censuses  did 
not  give  this  item  of  information.  The  census 
of  1890  showed  that  the  number  had  been 
reduced,  during  the  preceding  ten  years,  from 
7770  to  4987.  Considering  the  increase  of 
twenty-five  per  cent  in  the  general  popula- 
tion, the  decrease  of  thirty-six  per  cent  in  the 
number  of  children  in  almshouses  is  not 
without  encouragement.  The  number  be- 
tween two  and  sixteen  years  of  age  in  alms- 
houses to  every  100,000  of  the  total  population 
was  reduced  from  fifteen  in  1880  to  eight  in 
1890.  Included  in  the  total  of  4987  are 
large  numbers  of  defective  children,  and  also 
many  children  retained  in  so-called  children's 


THE  BACKWARD  STATES 


8i 


asylums  connected  with  almshouses,  but  in 
which  the  children  are  not  immediately  asso- 
ciated with  adult  paupers,  a  plan  which  is 
just  a  little  less  objectionable  than  keeping 
both  classes  in  the  same  building.  It  is  to 
be  regretted  that  statistics  on  this  point  will 
probably  not  be  given  in  the  census  of  1900. 

Contrary  to  the  general  opinion,  the  states  in 
which  there  were  still  large  numbers  of  chil- 
dren in  almshouses  in  1890  are  not  confined  to 
the  south.  In  fact,  as  shown  by  the  following  mainly  in 
table,  the  sixteen  states  which  are  the  worst  ^^^^^ 

states  of 

offenders  in  this  regard  include  ten  of  the  the  union, 
sixteen  which  comprised  the  union  in  1801  : 


Number  of  Children  between  Two  and  Sixteen  Years  of  Age 
IN  Almshouses,  to  every  100,000  of  the  General  Population, 
1890. 

46 
27 

25 
23 
19 
18 

17 
16 

15 


New  Hampshire 
Vermont 
West  Virginia 
New  Jersey 
Virginia  . 
Maine 
Ohio 

Rhode  Island 
Massachusetts 
Indiana  . 
Kentucky 
Montana . 
North  Carolina 
Pennsylvania 
Illinois  . 
Tennessee 


15 
14 
12 
10 


CHAPTER  V 


THE  STATE  SCHOOL  AND  PLACING-OUT 

SYSTEM 

Historical  sources  and  discussion  :  See  article  on  state 
public  schools  for  dependent  and  neglected  children,  G.  A. 
Merrill,  in  report  of  committee  on  child-saving,  national 
conference  of  charities  and  correction,  1893.  -^^so  reports 
of  state  public  schools  for  dependent  children :  Michigan, 
1874-  ;  Minnesota,  1885-  ;  Wisconsin,  1885-  ;  Rhode 
Island,  1885-  ;  Colorado,  1896-  ;  Montana,  1894-  ; 
Nevada,  1869-  ;  Texas,  1889-  ;  also  Iowa  soldiers' 
orphans'  home  and  home  for  indigent  children,  1876-  ; 
and  Kansas  state  home  for  soldiers'  orphans,  1887-  • 

Public  The  public  systems  adopted  in  various 

systems  states  for  the  care  of  destitute  children  out- 
almshousr  ^^^^      almshouses  may  be  roughly  classified 

care :  aS  f ollows  : 

state  (^)  The  state  school  and  placing-out  sys- 

schools  tern,  adopted  by  Michigan,  Minnesota,  Wis- 

withplac-  ^Qj^gjj^    Rhode    Island,   Kansas,  Colorado, 

ing  out,  '  y  f  f 

Nebraska,  Montana,  Nevada,  and  Texas, 
county         (^)  The  county  children's  home  system, 
homes,      adopted  by  Ohio,  Connecticut,  and  Indiana, 
support         (^)  The  plan  of  supporting  public  charges 
in  private   in  private  institutions,  which  prevails  in  New 

82 


MICHIGAN 


83 


York,  California,  Maryland,  the  District  of  institu- 
Columbia,  and  to  some  extent  in  several  other 
states. 

(d)  The  boarding-out  and  placing-out  sys- 
tem, which  is  carried  on  directly  by  the  public 
authorities  in  Massachusetts;  through  a  pri-  fnd board- 
vate  organization  —  the  children's  aid  society  andplac- 
- —  in  Pennsylvania ;  and  has  recently  been  ing  out. 
undertaken  by  the  state  authorities  in  New- 
Jersey. 

Although  Massachusetts  established  a  state 
primary  school  at  Monson  in  1866,  having  col- 
lected there  two  years  before  all  children  from 
the  other  two  state  almshouses,  and  removed 
the  larger  part  of  the  adult  paupers  therefrom 
in  1872,  this  institution  was  only  for  the  care 
of  the  "  unsettled  poor  children.  Each  city 
and  town  still  cared  for  its  local  poor,  includ- 
ing destitute  children,  in  its  own  way  —  often 
in  the  almshouse. 

Michigan  was  the  first  state  to  establish  an 
exclusive  state  system  for  the  care  of  all 
destitute  children  who  become  public  charges.  The  Mich- 
by  collecting  them  in  one  central  institution,  ^^an  plan, 
from  which  they  are,  as  soon  as  possible, 
placed  out  in  families.  Neither  the  state 
nor  the  local  authorities  place  any  children 
in  private  institutions,  nor  make  any  appro- 


84  THE  STATE  SCHOOL  SYSTEM 


priations  to  private  agencies.  The  Michi- 
gan plan  "  has  become  known  far  and  wide, 
and  has  been  adopted  by  a  number  of  other 
states.  During  the  twenty-seven  years  of  its 
existence,  this  system  has  followed  closely 
Children,  the  lines  laid  down  by  its  founders.  These 
both  desti-  j^a^yg  already  been  suggested  in  part.  Chil- 

tute  and       ,  ^  ^ 

neglected,  ^^^^  committed  by  the  judges  of  probate 
committed  of  the  various  counties,  upon  the  application 
by  courts,   ^£  ^-j^q  superintendents  of  the  poor.  Subse- 

becommg  ^  ^ 

wards  of     qucnt  legislation  authorized  the  commitment 
the  state,    to  the  school  of  neglected  and  ill-treated  chil- 
dren in  the  same  manner.    All  such  children 
become  wards  of  the  state,  but  may  be  re- 
turned to  their  parents  by  the  voluntary  action 
of  the  board  of  control  of  the  school.  The 
system  is  under  the  direction  of  an  unsal- 
aried board  of  control  of  three  members, 
appointed  by  the  governor  and  serving  for  a 
term  of  six  years  each,  one  member  being 
appointed  every  other  year.    The  state  pub- 
County      Uc  school,  located  at  Goldwater,  is  not  unlike 
placing-     many  other  well-managed  institutions  on  the 

out  agents  j  <d 

provided,  cottage  plan.  At  the  outset,  a  system  of 
county  agents  was  estabhshed,  the  governor 
being  authorized  to  appoint  in  each  county 
an  agent  to  investigate  applications  from 
families  desiring  to  receive  children,  and  to 
visit  the  children  placed  in  homes  in  his 


MICHIGAN 


85 


county  from  any  of  the  state  institutions. 
These  agents  receive  a  per  diem  allowance,  supple- 
limited  in  certain  counties  to  a  maximum  of  ^^^^^"^ 

the  work 

$100,  and  in  other  counties,  including  large 
cities,  to  a  maximum  of  ;^200  per  year. 
There  is  also  a  state  agent  appointed  by  the 
board  of  control,  whose  duties  are  to  investi= 
gate  applications  for  children,  and  to  visit 
children  who  have  been  placed  out.  Chil-= 
dren  of  all  ages  under  fourteen  years  are 
received  at  the  school,  and  are  retained  only 
until,  in  the  opinion  of  the  superintendent, 
they  are  fitted  to  be  placed  in  homes,  and 
satisfactory  homes  are  found.  The  average 
age  of  the  4807  children  received  from  the 
opening  of  the  school  in  May,  1874,  to  July  i.  Statistics 
1900,  was  six  years  and  two  months.  Sixty- 

r      1  11  1  school, 

six  per  cent  of  the  total  number  were  boys. 
Among  the  number  were  248  colored  chil- 
dren and  thirteen  Indian  children.  About 
one-third  of  the  whole  number,  or,  to  be 
exact,  1422,  came  directly  from  poorhouses, 
and  3385  from  the  homes  of  parents,  rela- 
tives, or  others.  The  census  of  the  institu- 
tion has  varied  from  150  to  250.  In  1884 
it  reached  255.  On  June  i,  1900,  it  had 
fallen  to  155.  The  expense  of  maintaining 
the  school,  including  salaries  of  state  and 
county  agents,  has  ranged  from  ;^36,ooo  to 


86  THE  STATE  SCHOOL  SYSTEM 


showing 
5000  chil- 
dren dealt 
with  in 
twenty-six 
years, 


;S545,ooo  per  year,  being  1^39,340.90  for  the 
year  ending  July  i,  1900.  The  number  of 
children  placed  out  in  families,  and  remaining 
under  supervision  of  the  school,  has  varied 
during  the  past  decade  from  900  to  1200. 
The  total  number  of  children  received  since 
the  opening  of  the  school  were  accounted  for 
on  July  I,  1900,  in  the  following  manner  : 


Remaining  in  school  July  i,  1900  . 

•  155 

In  families  under  supervision 

.  1262 

Adopted  by  families 

.  484 

Girls  who  have  married  . 

.  145 

Died  at  the  school  or  in  homes 

.  167 

Restored  to  parents 

•  575 

Declared  self-supporting 

.  1 109 

Become  of  age      .       .       .  c 

.  299 

Returned  to  counties 

.  611 

Total  number  received  . 

.  4807 

and  a  net  When  the  school  was  established  there 
decrease m  ^^ere  about  22$  children  in  the  poorhouses 
berofpub-  State.    Although  the  population  of 

lie  charges  the  State  increased  from  1874  to  1900  eighty- 
dme"^^^^^  one  per  cent,  and  although  laws  have  been 
enacted  and  enforced  for  the  rescue  of 
neglected  and  ill-treated  children,  who  have 
thus  become  wards  of  the  state  and  inmates 
of  the  state  public  school,  the  number  of 
children  who  are  public  charges  actually 
decreased  from  225  in  1874  to  about  200  in 


MINNESOTA 


87 


1900,  the  latter  figure  including  about  fifty- 
defective  children  in  almshouses.  The  number 
of  new  admissions  to  the  state  public  school 
last  year  was  less  than  in  any  year  since  1879. 

Minnesota  estabUshed  a  similar  institution 
in  1885.  One  feature  of  the  Michigan  plan, 
the  county  agent  system,  was  omitted.  Re- 
liance was  placed  upon  state  agents  em- 
ployed directly  by  and  under  the  control  of 
the  school.  In  1897  the  county  superintend- 
ents of  schools  were  made  ex-officio  agents  of 
the  state  public  school.  The  census  of  the 
school  has  increased  slowly  but  quite  steadily. 
The  average  census  for  the  year  ending  De- 
cember 31,  1900,  was  240,  as  against  about 
150  in  the  Michigan  school  for  the  same 
period.  Three  agents  are  now  employed  in 
finding  homes  for  children  and  visiting  them 
subsequently.  The  2159  children  received 
from  the  opening  of  the  school  to  December 
31,  1900,  are  thus  accounted  for: 


Remaining  in  school,  1900  . 
In  families  on  indenture 
In  families  on  trial 
In  families,  adopted 
Died  in  school  or  in  families 
Returned  to  parents 
Self-supporting  . 
Returned  to  counties,  being  improper  cases 


255 
1063 

47 
77 
66 
105 
458 


Minnesota 

adopts  the 

Michigan 

plan 

almost 

entire. 


The  sta- 
tistics 
show  two 
thousand 
children 
dealt  with 
in  fifteen 
years, 


2159 


88  THE  STATE  SCHOOL  SYSTEM 


The  average  age  of  the  children  when  re- 
ceived was  slightly  higher  than  in  Michigan, 
more  than  being  8. 1 6  years,  as  against  6.8  years  in  Michi- 
^l^^^^      Ran.    Of  the  1058  children  in  families  on  in- 

whom  are    ^  -* 

now  self-  denture,  July  31,  1900,  the  following  account 
supporting     given : 

or  doing  Per 
well  on  in-  No.  cent 

denture.  good  homes,  progressing  steadily,  doing 

well  695  66 

Not  so  promising,  or  in  less  desirable  homes, 

doing  fairly  well    .       .       .       .       .    275  26 
Give  no  promise  of  becoming  useful,  doing 

poorly  88  8 

This  does  not  include  543  children  now  past 
eighteen  years  of  age,  of  whom  it  is  stated  that 
450,  or  eighty-three  per  cent,  have  grown  into 
men  and  women  of  good  character. 

A  special  study  was  made  in  1897  and  1898 
of  106  children,  who  had  passed  seventeen 
Bad  par-  years  of  age,  and  one  or  both  of  whose  parents 
parentiy  of  ^^^^  known  to  have  been  of  bad  character, 
little  effect  Personal  visits  were  made  in  each  case  in 
on  placed-  order  to  gain  full  information.  It  was  found 
dren  eighty-three  per  cent  were  young  people 

of  good  character.  The  investigation  covered 
all  children  of  bad  parentage  placed  in  fami- 
lies and  past  seventeen  years  of  age.  It  is 
interesting  that  the  percentage  of  good  re- 
sults is  precisely  the  same  as  among  all  chil- 


WISCONSIN 


89 


dren  past  eighteen  years  of  age,  without 
regard  to  character  of  parents. 

Wisconsin  established  a  state  school  in  the 
same  year  as  Minnesota,  and  also  kept  largely 
to  the  Michigan  plan.  The  school  was  on  the 
cottage  plan,  and  was  opened  in  November, 
1886.  The  census  has  been  as  high  as  300, 
but  on  September  30,  1900,  was  only  147. 
The  legislature  of  1901  provided  for  the  ad- 
mission of  crippled  and  deformed  children  of 
sound  mind,  and  of  infants,  the  minimum  age 
having  previously  been  three  years.  It  also 
required  all  children  to  be  placed  out  within 
sixty  days  after  admission,  or  the  filing  of 
a  verified  statement  of  the  reasons  for  the 
failure  so  to  do,  a  similar  statement  to  be  filed 
every  sixty  days  thereafter  until  the  child  is 
placed  out.  The  2221  inmates  received  from 
the  opening  of  the  school  to  September  30, 
1900,  are  accounted  for  as  follows  : 


Remaining  in  school,  1900  . 

.  147 

In  families  on  indenture 

.  1038 

•  173 

.  62 

Died  

.  30 

Returned  to  counties 

.  228 

Of  age  

•  157 

Transferred  to  other  institutions  . 

•  54 

In  families  on  expired  indenture  . 

•  332 

Wisconsin 
plan  simi- 
lar to  that 
of  Michi- 
gan. 


Cripples 
and  infants 
admitted. 


Placing 
out  within 
sixty  days 
manda- 
tory. 


Over  two 
thousand 
children 
dealt  with 
in  fifteen 
years. 


2221 


90  THE  STATE  SCHOOL  SYSTEM 


Rhode  Island  established  its  state  home 
and  school  for  children  in  the  same  year, 
1885,  as  Minnesota  and  Wisconsin.  The 
institution  was  placed  under  the  control  of 
the  state  board  of  education,  but  in  1891  it 
Rhode  was  placed  under  the  charge  of  a  newly 
Island       created  board  of  control  consistiner  of  seven 

places  out  ^ 

propor-  members.  The  statute  establishing  the  school 
tionately  very  brief,  and  left  substantially  every- 

fewer  chil' 

dren.  thing  to  the  state  board  of  education.  An 
amending  act,  passed  in  1888,  declared  that 
the  object  of  the  institution  was  to  provide 
for  neglected  and  dependent  children  not 
recognized  as  vicious  or  criminal.  The  board 
of  education  was  authorized,  in  its  discretion, 
to  place  children  in  families,  and  was  made 
the  legal  guardian  of  all  children  admitted  to 
the  institution.  Placing  out  is  one  of  the 
objects  of  this  institution,  but  because  of  the 
lack  of  placing-out  agents,  and  also,  perhaps, 
owing  to  the  small  size  of  the  state  and  the 
greater  difficulty  of  finding  satisfactory  free 
Six  hun-  homes  for  some  classes  of  children  in  the  east- 
^^th  ^^^^^  states,  the  placing  of  children  in  families 
fifteen  been  carried  on  so  largely  as  in  Mich- 

years,  igan,  Wisconsin,  and  Minnesota.  The  630 
children  received  from  the  opening  of  the  in- 
stitution in  April,  1885,  to  December  31,  1900, 
are  accounted  for  in  the  following  manner : 


I 


RHODE  ISLAND 


91 


Remaining  in  home,  Dec.  31, 1900  . 

.  150 

Placed  in  families  .... 

.  415 

Returned  to  local  authorities  . 

•  32 

Died  ...... 

7 

.  13 

Sent  to  reform  school 

•  13 

630 

Kansas  established  a  state  home  for  sol- 
diers' orphans  in  1887.    As  the  applications 
for  the  admission  of  soldiers'  orphans  de-  The  sol- 
creased,  the  institution  was  opened  to  other  ^^p^^^^, 
destitute  children  by  a  statute  of  1889,  which  home  of 
applied  to  the  school  the  essential  features  of  Kansas 
the  Michigan  system,  except  that  the  county  J^^^l^ 
superintendents  of  schools  were  made  ex  a  school 
officio  its   county   agents.     Gradually  the  similar  to 
character  of  the  institution  has  been  assimi-  Michigan 
lated  to  that  of  the  state  public  schools  above 
described.    Of  the  160  children  in  the  insti- 
tution in  December,  1900,  only  fifty-one  were 
soldiers'  orphans.    The  state  makes  small  Some  sub- 
appropriations  to  a  number  of  private  institu-  ^idizmg  of 

...       M  •     T  rr  .      •      •         private  in- 

tions,  givmg  ^3400  to  six  different  institutions  stitutions. 
in  1 90 1.  Under  a  law  passed  in  190 1,  county 
commissioners  are  authorized  to  commit  chil- 
dren to  private  societies  for  placing  out  chil- 
dren, and  to  pay  such  societies  an  amount 
not  to  exceed  ;^5o  for  the  expenses  incurred 
for  each  child. 


92  THE  STATE  SCHOOL  SYSTEM 

Colorado   established  a   state  home  fof 
dependent  children,  which  was  opened  in 

Colorado.  March,  1896.  Prior  to  that  time  dependent 
children  were  county  charges,  and  were 
either  detained  in  almshouses  or  placed  in 
private  institutions  at  county  expense.  A 
state  agent  is  employed  for  placing  children 
in  families. 

Montana  has  a  state  orphans'  home,  opened 
in  September,  1894.    Of  the  230  children 

Montana,  admitted  from  that  date  to  December  i,  1900, 
148  have  been  placed  in  families  or  returned 
to  relatives.  The  annual  report  of  1898  ex- 
presses the  opinion  that  it  is  better  to  develop 
an  efficient  placing-out  system  than  to  keep 
the  children  and  teach  them  trades. 

Nevada  also  has  a  state  orphanage,  estab- 
lished at  an  earlier  date  than  any  other  state 

Nevada.  institution  for  destitute  children  except  that  of 
Massachusetts,  since  closed.  It  was  estab- 
lished in  1869.  Prior  to  this  time  the  state 
had  for  some  years  made  appropriations  to  a 
private  orphan  asylum.  This  appropriation 
was  discontinued  after  the  state  orphanage 
was  opened.  The  orphanage  is  under  the 
control  of  a  board  consisting  of  the  state 
surveyor,  the  state  superintendent  of  public 
instruction,  and  the  state  treasurer.  The 
census  varies  from  seventy  to  one  hundred. 


OTHER  STATES  93 

Children  are  placed  in  families  occasionally, 
but  this  is  not  regarded  as  an  important 
feature  of  the  work.  Though  a  strictly  state 
institution,  it  received  a  legacy  of  $S000  in 
1886  for  an  industrial  department. 

Texas,  too,  has  a  state  orphan  asylum, 
opened  in  1889.  This  institution  is  en- 
dowed by  lands  set  apart  for  the  purpose  Texas, 
when  Texas,  having  seceded  from  Mexico, 
was  organized  as  an  independent  republic, 
about  1836.  The  census  of  the  institution 
on  September  i,  1900,  was  304.  The  endow- 
ment very  evidently  tends  to  encourage  the 
retention,  rather  than  the  placing  out,  of  the 
children. 

During,  or  just  after  the  close  of,  the  civil 
war,  Iowa  established  three  homes  for  sol- 
diers' orphans.  As  the  numbers  decreased,  Iowa, 
two  of  the  homes  were  closed.  In  July, 
1876,  the  name  of  the  third  was  changed 
to  "Iowa  soldiers'  orphans'  home  and  home 
for  indigent  children,"  and  it  was  opened  to 
all  destitute  children  who  were  public  charges 
in  the  state.  It  was  intended  that  all  chil- 
dren in  the  almshouses  should  be  removed 
to  this  institution,  but  the  law  was  not  obli- 
gatory and  was  not  fully  carried  into  effect. 
The  census  of  the  home  was  thus  divided  at 
various  dates : 


94  THE  STATE  SCHOOL  SYSTEM 


Soldiers'  Other  destitute 
orphans  children 

1879  98  44 

1887  42  209 

1897  297  190 

1900  265  181 


Nebraska. 


A  total  of 
eleven 
states  fol- 
lowing the 
Michigan 
plan. 


The  state  of  Nebraska  made  appropriations 
for  a  number  of  years  to  the  home  for  the 
friendless  at  Lincoln,  an  institution  under 
private  management.  The  state  gradually 
increased  its  control  over  the  institution  as 
it  increased  its  appropriations,  and  in  1899 
took  entire  charge  of  the  institution.  The 
governor  appoints  the  superintendent,  who 
conducts  the  institution  under  rules  and  reg- 
ulations prescribed  by  the  board  of  public 
lands  and  buildings.  It  is  reported,  how- 
ever, that  it  remains  practically  a  local  insti- 
tution, and  is  not  likely  to  develop  into  a 
state  institution  for  children  such  as  exists 
in  Michigan. 

Eleven  states  have  thus  established  insti- 
tutions for  dependent  children,  following 
more  or  less  closely  the  Michigan  model. 
Among  the  undoubted  advantages  of  this 
plan  are  the  following : 

I.  It  offers  little  or  no  inducement  to 
parents  to  throw  their  children  upon  the 
public  for  support.    The  fact  that  the  cus- 


ADVANTAGES  OF  THE  SYSTEM  95 


tody  of  the  children  is  to  be  vested  in  state 

authorities,  and  that  the  children  are  to  be  Thissys- 
removed  to  an  institution  at  some  distance, 

from  which  after  a  brief  period  they  are  to  parent  ^ 

be  placed  in  families,  discourages  parents  frompart- 

from   partinsf  from   their   children   unless  ^f^."^^^,^., 

^         ^  their  chil- 

such  a  course  is  really  necessary.  Nor  dren. 
does  this  requirement,  as  a  rule,  work  un- 
necessary hardship.  The  board  of  control 
can  relinquish  to  worthy  parents  the  cus- 
tody of  their  children,  if  such  a  course  be- 
comes desirable,  and  does  so  in  numerous 
cases.  Furthermore,  the  fact  that  sending 
a  child  to  the  state  institution  involves  the 
transfer  of  its  guardianship  to  the  state 
authorities  affords  a  logical  and  altogether  Private 
satisfactory  division  of  the  field  of  chari-  chanties 

,  ,  I  T  ,  .       .  enabled  to 

table  work,  as  between  the  state  and  private  jij^jt  their 
agencies.    It  is  natural  and  proper  that  the  efforts  to 
private  institutions  should  receive  children  temporary 
for  whom  only  temporary  care  is  needed. 
Such  a  dividing  line  is  not  easily  established 
in  states  in  which  the  subsidy  system  has 
been  adopted,  or  in  which  there  is  a  county 
home  for  children  under  the  care  of  public 
authorities  in  each  county.     The  superin- 
tendent of  the  Minnesota  state  public  school 
recently  reports  that  **The  most  important 
development  in  private  charities  for  children 


96  THE  STATE  SCHOOL  SYSTEM 


One  insti- 
tution less 
subject  to 
expansion 
than  a 
group  of 
smaller  in- 
stitutions. 


State 
adminis- 
tration 
more  in- 
telligent, 
and  less 
partisan, 
than  local. 


The 
prompt 
placing 
out  char- 
acteristic 
of  the 
system 


in  this  state  seems  to  be  a  complete  change 
in  the  functions  of  such  institutions.  They 
have  become  places  for  the  accommodation 
of  children  whose  parents  wish  to  place 
their  children  in  an  institution  for  a  short 
time,  until  they  can  take  them  and  care  for 
them  again  themselves." 

2.  One  institution,  supported  by  the  state, 
is  much  less  likely  to  increase  in  size  indefi- 
nitely than  a  number  of  similar  institutions, 
each  of  which  is  apt  to  become  a  centre  of 
local  interest  and  of  a  local  pride  which  is 
more  enthusiastic  than  wise. 

3.  The  state  is  a  more  intelligent,  resource- 
ful, impartial,  and  efficient  administrative  unit 
than  local  political  divisions.  It  commands  a 
better  grade  of  talent,  and,  as  a  rule,  more 
ample  resources.  Its  institutions  are  gener- 
ally less  subject  to  partisan  influences  than 
those  of  cities,  counties,  or  towns. 

4.  The  placing-out  system,  which  has 
been  made  the  most  important  feature  of 
the  best  state  systems,  restores  the  children 
more  promptly  than  any  other  method  to 
the  normal  life  of  the  family  and  of  the 
community.  In  the  state  institutions  there 
are  none  of  the  incentives  to  retain  children 
unduly,  such  as  are  apt  to  prevail  in  local 
institutions,  or  in  private  institutions  receiv- 


OBJECTIONS  97 

ing  per  capita  allowances  from  public  funds. 
The  effective  use  of  the  placing-out  system  bothbene- 
not  only  secures  to  the  children  the  undoubt- 
edly  superior  advantages  of  family  life  and  dren  and 
training,  but  also  diminishes  correspondingly  surpris- 
the  public  burden.    The  amounts  spent  by  no^ical^' 
the  states  of  Michigan  and  Minnesota  for  the 
care  of  destitute  children  seem  almost  ridicu- 
lously small  when  compared  with  the  amounts 
expended  in  other  states ;  yet  there  is  every 
reason  for  believing  that  the  needs  of  the 
destitute  and   neglected   children   are  no- 
where more  adequately  met  than  in  those 
states. 

The  leading  objections  that  have  been  urged 
against  the  state  school  system  are :  That  it 
is  subject  to  the  influences  of  partisan  politics,  objections 
and  all  the  evils  of  the  spoils  system ;  that  ^^^^^ 
the  trustees,  superintendents,  oflficers,  and  theTys- 
teachers  are  likely  to  be  selected,  not  because  tem. 
of  fitness,  but  because  of  political  services 
or  influence ;  that  with  every  change  in  the 
political  control  of  the  state,  the  trustees  and 
officers  are  likely  to  be  removed,  and  inex- 
perienced persons  of  doubtful  qualifications 
placed  in  charge ;  and  that  the  plan  does  not 
enlist  the  cooperation  and  support  of  the 
better  classes  of  citizens,  who,  it  is  presumed, 
do  not  participate  actively  in  politics.  These 


98  THE  STATE  SCHOOL  SYSTEM 

are  serious  charges,  if  well  founded.  It  is 
Partisan  the  Opinion  of  the  writer,  after  careful  study 
influences  ^]^jg  phase  of  the  Subject,  that  some  of  the 
terfered  at  State  schools  for  dependent  children  have  not 
times,  but  been  wholly  free  at  times  from  harmful  par- 
only  tem-    ^jgg^j^  influences,  but  that  such  disturbances 

porarily.  . 

have  been  temporary,  and  have  not  seriously 
impaired  the  proper  development  of  the  sys- 
tem, nor  seriously  endangered  the  welfare  of 
any  considerable  number  of  children.  The 
Michigan  school,  after  being  practically 
free  from  partisanship  for  nearly  twenty 
years,  was  suddenly,  in  1891,  deprived  of 
Political  its  board  of  control  and  placed,  with  the 
experi-      other  charitable  and  with  the  penal  institu- 

ences  of       .  _     ,  -  .  . 

the  Michi-  tions  of  the  State,  under  a  newly  created 
gan  school,  board  of  control  of  a  different  political  com- 
plexion. On  at  least  one  other  occasion  it 
had  passed  through  political  upheavals  in  the 
state  without  disturbance.  In  this  case,  after 
two  years,  the  former  political  conditions  re- 
turned, and  the  separate  board  of  control  of 
the  school  was  reestablished.  During  the 
twenty-seven  years  of  its  existence  the  school 
has  had  nine  different  superintendents,  though 
it  is  stated  on  the  best  of  authority  that  only 
two  of  these  changes  have  been  due  in  any 
degree  to  politics,  and  on  several  occasions 
superintendents  of  a  different  political  faith 


POLITICAL  INFLUENCES  99 


institu- 
tions. 


from  the  board  of  control  have  been  appointed 
and  retained  in  office.  The  new  political 
control,  created  in  1891,  discontinued  the 
state  visiting  agent,  —  a  most  short-sighted 
step,  which  resulted  in  losing  sight  of  a  num- 
ber of  the  placed-out  children.    It  is  a  ques-  Similar 

tion,  however,  whether  the  disturbances  to  disturb- 
ances not 

which  the  Michigan  state  school  has  been  unknown 
subjected  by  politics  have  been  more  serious  in  private 
than  those  from  which  many  private  institu- 
tions suffer,  in  a  correspondingly  long  period, 
from  the  influence  of  managers  of  limited 
experience,  or  who  give  but  little  time  or 
thought  to  their  duties,  or  who  are  actuated 
by  motives  akin  to  those  which  too  often 
prevail  in  politics.  It  is  also  clear  that  the 
board  of  control,  three  in  number,  is  quite 
too  small  to  insure  continuity  in  policy  under 
changing  political  conditions.  A  larger,  more 
slowly  changing  board  would  be  a  safeguard. 

The  Minnesota  institution  has  had  a  his- 
tory of  which  any  institution,  public  or  private.  The  Min- 
might  well  be  proud.    Its  original  board  of  nesota 

,1  ,  1    T  1     1  school  has 

control  has  never  been  abonshed  or  super-  beenre- 

seded  by  any  other  body.   One  of  the  original  markabiy 

board  of  commissioners,  appointed  to  select  p^j^J^^J^ 

the  site  and  organize  the  school,  has  been  interfer- 

from  the  first  the  president  of  the  board.    A  ence. 
former  state  agent  and  assistant  superintend- 


100         THE  STATE  SCHOOL  SYSTEM 


The  state 
school  sys- 
tem the 
distinc- 
tively 
American 


ent  of  the  Michigan  institution  was  made 
the  first  superintendent  of  the  Minnesota 
school,  and  has  remained  continuously  in 
charge  until  the  present,  and  has  progres- 
sively and  consistently  developed  its  work. 
The  esteem  in  which  he  and  other  workers 
in  similar  institutions  are  held  by  those  in- 
terested in  child-saving  work  in  all  parts  of 
the  country  is  indicated  by  the  fact  that  he 
was  appointed  chairman  of  the  child-saving 
section  of  the  twenty-seventh  national  con- 
ference of  charities  and  correction,  while  the 
president  of  the  conference  was  a  •  former 
superintendent  of  the  Kansas  state  institution 
for  children. 

The  Rhode  Island  institution  is  also  believed 
to  have  been  substantially  free  from  partisan- 
ship ;  that  of  Wisconsin,  somewhat  less  so. 
While  the  danger  of  political  interference  is 
a  real  and  a  serious  one,  it  should  be  borne  in 
mind  that  there  is  an  increasing  appHcation 
of  the  merit  system  to  public  charitable  insti- 
tutions ;  that  untoward  influences  of  a  char- 
acter akin  to  partisanship  are  not  lacking  in 
some  private  institutions ;  that  in  some  states 
public  sentiment  is  such  that  it  has  become 
"bad  polities''  to  interfere  with  state  chari- 
table institutions,  and  that  the  state  system  pos- 
sesses advantages,  enumerated  above,  which, 


SOLDIERS'  ORPHANS'  HOMES  lOI 


in  our  opinion,  outweigh  the  dangers  arising  contnbu- 
from  poHtics.    On  the  whole,  the  state  public  ^^^^ 
school  for  dependent  children  is  undoubtedly  systems  of 
the  distinctively  American  contribution  to  child  sav- 
public  systems  of  child-saving  work.  ^"S- 

Several   states,   including  Pennsylvania, 
Illinois,  Kansas,  Minnesota,  Ohio,  Indiana, 
Iowa,  and  Wisconsin,  have  established  state 
homes  for  soldiers'  orphans.     Since  these 
institutions  were  created  to  meet  a  special 
need  which,  let  us  hope,  is  not  Hkely  to 
recur,  their  work  will  not  be  considered  in 
detail.    The  decreasing  number  of  applica-  Soldiers' 
tions  for  admission  to  such  institutions  has  o^^phans' 
already  created  an  interesting  problem  as  to  in^aban-" 
their  future.    Kansas  and  Iowa  have  solved  doned  or 
the  problem  by  gradually  converting  their  |^^^^^g[^^^ 
state  soldiers'  orphans'  homes  into   state  public 
public  schools  for  dependent  children.    Min-  schools, 
nesota  and  Wisconsin  abolished  their  insti- 
tutions ;  the  latter  state,  after  maintaining 
the  institution  from  1866  to  1876,  turned  the 
buildings  over  to  her  state  university.  Illi- 
nois could  not  do  better  than  follow  the 
example  of  Kansas  and  Iowa.    Efforts  in  the 
same  direction  have  already  been  made  in 
Pennsylvania,  though  there  is  little  need  in 
that  state  of  a  state  public  school  for  de- 
pendent children,  on  account  of  the  efficient 


102         THE  STATE  SCHOOL  SYSTEM 


work  of  the  children's  aid  society.  The 
increasing  amount  of  the  state  subsidies  to 
private  orphan  asylums  and  children's  homes 
in  Pennsylvania  affords,  however,  a  plausible 
argument  for  the  establishment  of  a  state 
institution  of  this  character.  Indiana,  strange 
to  say,  maintained  her  soldiers'  orphans' 
home  and  her  school  for  the  feeble-minded 
in  the  same  buildings  and  under  the  same 
management  until  1885,  when  they  were 
separated. 


CHAPTER  VI 


THE  COUNTY  CHILDREN'S  HOME  SYSTEM 

Historical  sources  and  discussion :  For  Ohio,  see  proceed- 
ings of  the  national  conference  of  charities  and  correction, 
1880,  1888,  1890;  also  reports  of  state  board  of  charities, 
1 867-1 87 1  and  1876-  .  Indiana:  see  reports  of  state 
board  of  charities,  1889-  >  2,nd  Bulletin  of  Charities  and 
Correction  issued  by  the  board.  Connecticut:  see  article 
on  history  of  child-saving  work  in  Connecticut,  Mrs.  V.  T. 
Smith,  in  report  of  committee  on  child-saving,  national  con- 
ference of  charities  and  correction,  1893  >  reports  of  state 
board  of  charities,  1873-  ;  also  proceedings  national  confer- 
ence, 1885,  i^^7* 

Some  fifteen  years  before  Michigan  estab- 
lished her  now  famous  state  pubHc  school  Origin  of 
for  dependent  children,  a  kind-hearted  woman,  ^^^^ 
who  had  been  touched  by  the  forlorn  condi-  home^ 
tion  of  the  twenty-six  children  associated  system, 
with  adult  paupers  in  the  Washington  county 
(Ohio)  almshouse,  established,  under  her  per- 
sonal direction,  a  small  home  for  children 
on  a  farm  ten  miles  from  the  city  of  Marietta. 
The  county  commissioners  placed  the  chil- 
dren from  the  poorhouse  under  her  care, 
paying  her  a  per  capita  rate  of  $i  per  week 
for  their   maintenance.     With   a  view  to 
103 


I04         THE  COUNTY  HOME  SYSTEM 

securing  similar  care  for  children  in  the 
other  almshouses  of  the  state,  a  bill  was  pre- 
sented to  the  legislature  of  1864  authorizing 
counties  to  establish  homes  for  children. 
These  homes  were  to  be  wholly  apart  from 
almshouses  and  under  the  control  of  boards 
of  trustees  appointed  by  the  county  commis- 
sioners, and  supported  by  public  funds.  The 
bill  became  law  in  1866. 

Subsequently,  the  state  board  of  charities 
exerted  a  powerful  influence  in  behalf  of  the 
establishment  of  such  homes,  with  the  result 
that  from  1866  to  1899  fifty  were  established. 
Placing-     The  placing-out  system,  while  provided  for 
out  an  un-  statute,  was  not  made  in  fact  an  im- 

important  -  -     ,  .  .     ,  , 

feature  of  po^tant  feature  of  the  origmal  plan ;  very 
the  plan  likely  because  the  good  woman  through 
originally.  ^^Qge  influence  it  was  established  had  been 
drawn  into  the  work  through  observing  the 
cruelty  to  which  an  orphan  child  who  had 
been  placed  in  a  family  of  low  character  was 
subjected.  The  county  homes  varied  much 
in  the  extent  to  which  they  placed  out  chil- 
dren, but  only  one  or  two  of  them  undertook 
such  work  extensively.  In  1889  a  law  was 
passed  authorizing  each  county  home  to 
employ  a  placing-out  agent.  In  1900  only 
two  of  the  homes  were  employing  agents,  so 
far  as  could  be  ascertained,  though  about 


OHIO 


105 


half  a  dozen  placed  out  children  through  the 
Ohio  children's  home  society. 

In  May,  1901,  forty-eight  of  the  eighty-eight 
counties  in  the  state  maintained  county  homes, 
each  under  a  separate  board  of  trustees ;  five  Homes  es- 
counties  made  separate  provision  for  children,  tabhshed 
but  their  homes  were  under  the  immediate  ^^idin  half 
management  of  the  board  of  infirmary  {i.e.  the  coun- 
almshouse)  directors  ;  and  nine  counties  main-  g^^^^J^^^^^ 
tained  their  destitute  children  in  private  in- 
stitutions, the  county  commissioners  paying 
a  per  capita  price  for  their  maintenance. 
In  several  of  these  nine  counties  property 
formerly  owned  by  the  county  has  been 
transferred  to  private  societies  which  admin- 
ister the  homes  under  the  laws  of  the  state, 
very  much  as  the  county  homes  are  admin- 
istered.   In  twenty-five  counties  no  homes, 
either  public  or  semi-public,  are  maintained. 
These  counties,  however,  make  provision  for 
their  dependent  children  in  the  county  homes 
of  other  counties.    In  one  county  children 
are  boarded  in  families  by  the  infirmary 
directors. 

On   April  25,  1901,  fifty  -one  children's  Over  two 
homes,   including  forty-five  county  homes,  thousand 
two   semi-public,  and   four   maintained  by  theseTnsti" 
infirmary  directors,  reported  a  total  of  2260  tutions. 
inmates,  of  an  average  age  of  a  little  over 


I06  THE  COUNTY  HOME  SYSTEM 


About 
25,000 
dealt  with 
in  thirty- 
five  years; 
perhaps 
one  third 
placed 
out. 


No  exact 
records  or 
close  su- 
pervision 
of  placed- 
out  chil- 
dren. 


Lack  of 
uniformi- 

ty. 


nine  years,  and  an  average  stay  in  the  insti- 
tution of  slightly  over  three  years.  These 
homes  reported  11 86  children  as  placed  in 
families  from  January  i,  1900,  to  April  25, 
1 90 1.  The  total  number  of  children  ad- 
mitted to  the  county  homes  since  their  organ- 
ization is  estimated  at  24,600,  of  whom  it  is 
thought  that  about  thirty  per  cent  have  been 
placed  in  families.  Exact  statistics  are  not 
to  be  had.  The  average  retention  of  chil- 
dren varied  greatly  in  different  institutions. 
No  reports  are  given  of  the  total  number 
of  placed-out  children  remaining  under  the 
oversight  of  the  homes,  and  probably  only 
fragmentary  records  are  kept  of  the  chil- 
dren after  they  are  placed  out ;  certainly 
there  is  no  uniform  system  of  supervision 
for  such  children.  In  Ohio,  therefore,  the 
county  system  has  proved  to  be  seriously 
lacking  in  securing  uniform  and  effective 
action  by  the  various  local  authorities. 

In  Connecticut  a  number  of  persons  who 
had  been  active  in  the  establishment  of  a 
private  home  for  children  caused  a  bill  to  be 
introduced  in  the  legislature  of  1882  prohibit- 
ing the  retention  of  children  in  almshouses. 
The  bill  failed  of  passage,  but  a  commission 
was  appointed  to  inquire  into  the  subject. 
Upon  the  recommendation  of  this  commis- 


CONNECTICUT 


107 


sion,  a  law  was  passed  in  1883  authorizing 

the  establishment  in  each  county  of  a  tempo-  Homes  in 

rary  home  for  children,  and  such  a  home  was  Connecti- 

cut 

opened  in  each  of  the  eight  counties  of  the  planned  to 

state  before  January  i,  1884.    The  homes  be  tempo- 

have,  in  each  case,  been  removed  from  the  ^^^^  ^^^y- 

sites  first  chosen,  and  their  management  has 

undergone  at  least  one  radical  change.  The 

present  plan  provides  that  each  county  home 

shall  be  managed  by  a  board,  consisting  of 

three  county  commissioners,  one  member  of 

the  state  board  of  health,  and  one  member 

of  the  state  board  of  charities.    Admission  Children. 

is  by  the  selectmen  of  a  town,  in  which  case  committed 

either  2.S 

the  child  is  a  town  charge,  or  by  a  formal  ^^^^ 
commitment  by  a  judge  of  probate,  or  judge  charges  or 
of  a  city  or  police  court,  in  which  case  the  ^^f 

.  wards. 

child  becomes  a  ward  of  the  state,  the  guardi- 
anship being  vested  in  the  board  of  managers 
of  the  home  and  the  expense  of  maintenance 
being  borne  by  the  state.    While  a  majority 
of  the  boards  of  managers  of  the  homes  are 
county  officials,  the  expense  is  borne  very 
largely  by  the  state,  the  remainder  being 
paid  by  the  towns.   The  state  board  of  chari-  Placing- 
ties  is  authorized  to  recommend  to  the  boards 
of  managers  suitable  family  homes  in  which  state^oard 
children  may  be  placed,  and  is  authorized  to  of  chari- 
visit  children  who  have  been  placed  out. 


I08  THE  COUNTY  HOME  SYSTEM 


Two  agents  are  employed  by  the  state  board 
Steady  in-  for  this  purpose.  Under  this  plan  of  a  di- 
crease  in    yided  responsibility,  and  of  a  number  of  local 

census.        ...  .        ^  , 

mstitutions,  it  is  not  strange  that  the  numbers 
of  children  increased  rapidly,  from  ninety- 
four  in  1 884  to  705  in  1900.  One  county  home, 
to  relieve  overcrowding,  has  since  1 896  boarded 
a  number  of  its  younger  children  in  families, 
with  satisfactory  results.  One  county,  after 
maintaining  a  home  in  two  different  locations, 
accepted  the  offer  of  a  private  asylum,  and 
for  the  past  ten  years  the  children  have  been 
boarded  in  this  asylum  by  the  county  board 
of  management,  at  the  rate  of  $1.50  per  week. 
The  4629  children  received  from  the  opening 
of  the  homes  to  September  30,  1900,  are  thus 
accounted  for : 


Remaining  in  county  homes,  1900  .       .  705 

Manychil-         Placed  in  families  2555 

drenre-  Returned  to  friends  (relatives)      .       .  1724 

turned  to  Placed  in  other  institutions   .       .  .392 

relatives.  , 

Died   .  99 

Otherwise  disposed  of  .       .       .       .  299 

5774 

Duplicated  in  above  reckoning     ,  '1145 


4629 

In  addition  to  the  county  home  system,  the 
town  of  Norwalk  maintains  a  home  for  chil- 


INDIANA 


109 


dren  in  a  building  formerly  used  as  a  town 
almshouse,  and  several  towns  board  children 
in  private  asylums.    A  recent  official  report 
states  in  regard  to  the  county  temporary 
homes  :    It  is  very  difficult  to  preserve  their 
temporary  character,  and  the  number  of  chil- 
dren in  the  homes  increases  steadily  year  by 
year.'*    In  1898,  at  the  instance  of  one  of  the  Over- 
city  boards  of  charity,  the  legislature  author-  crowding 
ized  the  retention  of  children  in  almshouses  rograde 
until  four  years  of  age,  instead  of  two  years,  legislation, 
as  formerly.    This  was  done  to  prevent  over- 
crowding in  one  of  the  county  temporary 
homes,  but  it  was  a  serious  backward  step. 
A  further  backward  step  was  taken  in  1901 
when  the  boards  of  managers  of  the  county 
homes  were  authorized  to  board  children  in  Subsidies 
private  institutions,  the  bill  being  proposed  pnvate 
and  urged  by  those  who  favor  public  support  ^^^^^ 
of  children  in  institutions  under  the  control  thorized. 
of  religious  organizations. 

Indiana,  in   1881,  authorized   boards  of 
county  commissioners  to  establish  orphans'  Indiana 
homes,  which  were  to  be  placed  under  the  ^^^^^ 
immediate  charge  of  matrons.     Boards  of  geneous 
unpaid  visitors  were  to  be  appointed,  but  no  system 
form  of  actual  control  was  provided  except  ?^  county 

^  ^     homes  un* 

by  the  county  commissioners  and  the  matrons,  til  1897, 
Subsequently,  under  legislative  authority,  the 


no         THE  COUNTY  HOME  SYSTEM 


when  the 
rapid  in- 
crease in 
the  num- 
ber of  in- 
mates led 
to  state 
supervi- 
sion and  a 
state  plac- 
ing-out 
agency. 


commissioners  in  some  counties  intrusted  the 
management  of  the  county  children's  asylums 
to  ^^ocal  associations."  In  1901  there  were 
forty-seven  orphan  homes  receiving  children 
who  were  public  charges,  from  the  ninety- 
two  counties  of  the  state.  This  includes 
four  county  boards  of  guardians  and  several 
private  orphan  asylums  receiving  public 
charges.  No  statistics  concerning  the  opera- 
tions of  these  asylums  prior  to  1896  are 
available.  The  constant  increase  in  the 
number  of  children  led  to  a  movement  in 
1895  to  establish  a  state  school  for  dependent 
children ;  the  actual  result,  however,  was,  in 
1897,  a  system  of  state  supervision  of  the 
county  institutions,  and  the  establishment  of 
a  state  placing-out  agency  under  the  state 
board  of  charities.  At  the  same  time  the 
law  requiring  the  removal  of  children  from 
almshouses  was  passed.  The  agent  of  the 
state  board  began  by  visiting  the  county 
homes  and  enlisting  an  interest  in  the  plac- 
ing-out system.  He  is  authorized  to  visit 
children  placed  out  from  county  homes,  to 
remove  children  from  county  homes  and 
place  them  in  families,  and  to  transfer  placed- 
out  children  from  one  family  to  another  or 
return  them  to  asylums.  At  the  end  of  three 
and  one  half  years*  work  by  the  state  agent 


ADVANTAGES 


III 


6i8  children  had  been  placed  out  by  him,  of  Six  hun- 
whom  472  remained  in  families  under  his  ^^^^ 

.  .  dren 

supervision.  pl^^^^ 
The  number  of   children  in  the  county  so  far, 
orphan  asylums  receiving  public  aid  on  Octo- 
ber 31,  1897,  was  1401 ;  the  number  of  chil- 
dren in  almshouses  on  the  same  date,  232,  — 
a  total  of  1633.    The  number  remaining  in 
the  asylums  on  October  31,  1900,  was  1626; 
the  number  in  almshouses,  forty-nine,  a  total 
of  1675,  and  an  increase  of  forty-two  during 
the  three  years.    The  fact  that,  notwithstand-  but  no 
ing  the  marked  increase  in  the  number  of 
children  placed  in  families,  there  has  been  census  of 
no  decrease  in  the  number  of  children  who  the  county 
are  public  charges  is  striking.    Since  the  ^^y^^"^^- 
establishment  of  the  state  agency  four  county 
homes  have  been  established  and  four  others 
have  been  closed. 

In  some  states  in  which  no  system  is  en- 
forced by  law,  there  are  isolated  instances  of  isolated 
county  orphan  asylums  under  public  control,  county 
There  are  two  such  in  Pennsylvania,  one  in  elsewhere. 
Maryland,  one  in  New  York,  and  possibly 
others. 

The  advantages  that  have  been  claimed 
for  the  county  system  are,  that  it  enlists  the  Advan- 
interest  of  the  best  citizens  of  the  various  ^^^^^^ 
counties ;  that  it  avoids  sending  the  children 


112         THE  COUNTY  HOME  SYSTEM 


for  the 

county 
system 


not  justi- 
fied by  ex- 
perience. 


Ratio  of 
depend- 
ents to 
general 
population 


to  a  distance  (a  doubtful  benefit);  and  that 
the  institutions  can  be  kept  smaller  and 
therefore  more  homelike,  and  are  less  likely 
to  institutionalize  the  children. 

As  a  matter  of  fact,  experience  has  clearly 
demonstrated  that  the  system  possesses  none 
of  these  benefits,  except,  possibly,  the  first, 
and  that  the  local  interest  which  is  aroused 
is  more  enthusiastic  than  wise  in  regard  to 
child-saving  methods,  and  tends  to  the  en- 
largement of  the  institutions  as  a  matter  of 
local  pride.  A  number  of  children*s  institu- 
tions scattered  over  a  state  have  an  almost 
irresistible  tendency  to  increase  the  numbers 
of  children  who  become  public  charges ;  par- 
ents are  much  more  likely  to  part  from  their 
children  for  unworthy  or  insufficient  causes ; 
the  management  lacks  uniformity  and  effi- 
ciency ;  the  officials  of  the  various  homes  are 
less  expert  than  those  of  state  institutions. 

The  results  are  shown  by  comparison  of 
the  numbers  of  children  cared  for  under  the 
state  and  county  systems  in  adjoining  states 
in  which  conditions  are  similar.  Ohio  has 
one  child  a  public  charge  to  every  1839  of 
the  population;  Indiana  has  one  to  every 
1547;  and  Michigan  only  one  to  every 
1 5619.  Connecticut  has  one  dependent  child 
a  public  charge  in  every  1288  of  the  popula- 


OBJECTIONS 


113 


tern. 


tion;  Rhode  Island  only  one  to  2857.  (In 
each  case  the  census  of  1900  is  used  for  gen-  greatly 
eral  population.)    The  difference  is  not  to  be  ^^^^^^ 

_  than  undet 

accounted  for  by  the  different  percentages  of  state 
urban  population.  Rhode  Island  has  the  school  sys- 
largest  percentage  of  urban  population  of  any 
state  in  the  union,  eighty-one  per  cent,  as 
against  fifty-three  per  cent  in  Connecticut. 
Michigan  has  thirty-one  per  cent  and  Minne- 
sota twenty-six  of  urban  population  as  against 
thirty-eight  in  Ohio  and  only  twenty-four  in 
Indiana. 

The  argument  that  county  institutions  are 
smaller  and  more  homelike  than  state  institu- 
tions loses  most  of  its  force  in  view  of  the  State  in- 
fact  that  the  leading  state  institutions  are  on  stitutions 

1  1  -,     T      1  1  little  larger 

the  cottage  plan,  and  also  because  the  state  t^an  indi- 
institutions  are  but  little  larger  than  a  number  vidual 
of  the  county  institutions.     Three  of  the 

mstitu- 

county  temporary   homes   of   Connecticut,  tions. 
three  of  those  of  Ohio,  and  one  of  Indiana 
are  nearly  as  large  as  the  state  institution  of 
Michigan,  Wisconsin,  or  Rhode  Island. 

Another  objection  to  the  county  system  is 
that  such  of  the  children  as  are  placed  in 
families  are  placed  as  a  rule  at  a  very  short 
distance  from  their  former  surroundings,  thus 
making  interference  by  relatives  easy. 

The  weakness  of  the  county  system,  is 


114         THE  COUNTY  HOME  SYSTEM 


County 
system  has 
to  be  reen- 
forced  by 
state  plac- 
ing-out 
ao[encies. 


This  sys- 
tem, on 
the  whole, 
not  suc- 
cessful. 


further  shown  by  the  fact  that  both  Connecti- 
cut and  Indiana  have  already  established 
state  agencies  for  removing  the  children  from 
county  institutions  and  placing  them  in  fami- 
lies, and  Ohio  is  considering  such  a  step.  It 
is  doubtful,  however,  whether  a  state  placing- 
out  agency  can  ever  overcome  the  disadvan- 
tages of  local  control.  The  experience  of 
Indiana  and  Connecticut  simply  demonstrates 
more  clearly  than  before  the  need  of  central- 
ization. 

It  is  not  too  much  to  say  that  the  county 
children's  home  system  has  been  fairly  and 
fully  tried,  and  has  been  found  wanting. 


CHAPTER  VII 


THE  SYSTEM  OF  PUBLIC  SUPPORT  IN  PRIVATE 
INSTITUTIONS 

Historical  sources  and  discussion :  As  to  New  York,  see 
"  Child-saving  in  New  York,"  W.  P.  Letchworth,  in  report 
of  committee  on  child-saving,  national  conference  of  chari- 
ties and  correction,  1893.  "  Homes  for  homeless  children," 
extract  from  ninth  ann\lal  report  of  the  state  board  of 
charities,  relating  to  orphan  asylums  and  other  institutions 
for  the  care  of  children  (Weed,  Parsons,  &  Co.,  Albany, 
1876).  "  Dependent  children  supported  by  the  city  of  New 
York,  and  proposed  draft  of  bill  to  create  a  department  for 
their  care,"  Lend-a-Hand,  March,  1886;  report  on  the  insti- 
tutions for  the  care  of  destitute  children  in  the  city  of  New 
York,  from  nineteenth  annual  report  of  the  state  board  of 
charities,  1886  ;  report  upon  the  care  of  dependent  children 
in  the  city  of  New  York  and  elsewhere,  from  twenty-third 
annual  report  of  state  board  of  charities,  1890,  —  all  by  Mrs. 
J.  S.  Lowell.  Proceedings  of  conference  on  care  of  depend- 
ent and  delinquent  children  in  the  state  of  New  York,  1893 
(publication  No.  59,  state  charities  aid  association).  An- 
nual reports  of  the  state  charities  aid  association,  New 
York,  1894-  ,  also  its  publications  Nos.  63,  72,  and  73  ; 
"  Public  aid  to  private  charities  :  a  rejoinder,"  in  Charities, 
October  7,  1899;  also  "What  brought  about  the  New 
York  system  for  caring  for  dependent  children  ?  Do  these 
reasons  still  exist  ? "  by  Homer  Folks,  proceedings  first 
state  conference  of  charities  and  correction,  Albany,  1900. 
"  Municipal  subsidies  to  private  charities,"  a  report  to  the 
board  of  estimate  and  apportionment  of  New  York  city,  by 
Comptroller  B.  S.  Coler  (Martin  B.  Brown  Co.,  New  York, 

115 


Il6   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


1899).  California  :  see  reports  of  state  comptroller.  Dis- 
trict of  Columbia  :  see  reports  of  superintendent  of  chari- 
ties, 1 890- 1 900  ;  reports  of  board  of  charities,  1900-1901; 
also  report  of  joint  select  committee  to  investigate  the  chari- 
ties and  reformatory  institutions  of  the  District  of  Columbia 
(Government  printing  office,  3  volumes,  1 897-1 898).  New 
Hampshire  :  see  reports  of  state  board  of  charities,  1895-  • 


It   is   doubtful  whether  any  state  has 
adopted   deliberately  and  intentionally  the 
The  sub-    plan  of  public  support  in  private  institutions 
aclddr^aT      ^  general  state  system.   Usually  it  has  been 
rather       undertaken  in  various  localities  as  a  tempo- 
than  in-     rary  expedient,  and  then  gradually  extended, 
tentional.    ^^^[\^      permission  of  the  state,  rather  than 
by  its  direction,  it  has  become  the  prevailing 
system. 

In  New  York,  public  subsidies  to  private 
institutions  began  many  years  before  the 
Begin-       passage  of  the  law  for  the  removal  of  children 
mngs  of     f  1-om  almshouses.   In  1 8 1 1  the  state  authorized 

the  sys- 

teminNew  the  payment  of  ^500  yearly  to  the  New  York 
York  state,  orphan  asylum,  from  the  public  funds  derived 
from  auction  sales ;  the  same  favor  was  later 
extended  to  the  Roman  catholic  orphan 
asylum,  organized  in  18 17.  The  house  of 
refuge  for  juvenile  offenders,  organized  in 
1824,  was  from  the  first  largely  supported  by 
state  funds.  So  far  as  known,  no  other  state 
appropriations  were  made  to  orphan  asylums 
until  1847,  when,  in  addition  to  the  sum  of 


NEW  YORK 


117 


;^5oo  to  each  of  the  two  asylums  mentioned 
above,  ^^3000  was  appropriated  by  the  state 
to  be  distributed  among  orphan  asylums  for 
the  education  of  their  inmates.  The  number 
of  institutions  receiving  aid,  and  the  total 
amounts  granted,  increased  with  consider- 
able regularity  for  ten  years,  reaching  a  total 
of  ;^50,ooo  in  1857.  During  the  years  imme- 
diately preceding  and  subsequent  to  the  out- 
break of  the  civil  war,  the  amounts  were 
reduced,  being  only  ^11,000  in  1861.  In  Growth 
1866  the  sum  of   1^55,033  was  distributed  i^^^^^g^i- 

...  .  tude,  un- 

among    nfty-eight    mstitutions ;    m     1870  til  in  1872 
1 50,000  was  appropriated  to  orphan  asy-  nearly  a  • 
lums,  to  be  divided  among  the  counties  in  ^^JJ^^^ 
proportion  to  the  total  valuation  of  prop-  were 
erty,  and  within  the  county  to  be  divided  granted  by 
among  the  asylums  in  proportion   to   the  ^  ^ 
number  of  their  inmates.     In  addition  to 
this,  thirty-five  institutions  received  specific 
appropriations,  ranging  from  ^500  to  $5000 
each.    Many  private  charities  besides  orphan 
asylums  received  state  aid.    The  propriety  of 
prohibiting  such  appropriations  was  considered 
by  the  constitutional  conventions  of  1846  and 
1867.     The  latter  convention  adopted  an 
amendment  looking  in  this  direction,  but  the 
entire  revision  failed  of  adoption  by  popular 
vote.    The  total  amount  granted  by  the  state 


Il8   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


to  private  charities  increased  rapidly  from 
^[95,000  in  1863  to  ;^9io,ooo  in  1872. 

This  rapid  growth,  and  the  "log-rolling" 
and  other  objectionable  practices  in  the  legis- 
lature growing  out  of  the  custom,  were  un- 
doubtedly responsible  for  the  fact  that  the 
constitutional  commission  of  1873  adopted 
an  amendment  prohibiting  the  state  from 
State        using  either  its  money  or  its  credit  in  aid  of 
subsidies    a,ny  private  undertaking,  except  in  behalf  of 
cut1)ff;^in  juvenile  delinquents.    This  amendment  was 
1874, with-  ratified  by  the  people  in  November,  1874,  and 

out  serious        ^  sudden  end  to  the  granting^  of  state  sub- 
injury  to     ^  .     .  . 
theinstitu-  sidics.    Only  one  mstitution  was  seriously  al- 

tions        tered  in  character  by  this  step.    The  private 
affected.     asylum  for  destitute  Indian  children  was  soon 
afterward  reorganized  as  a  state  institution, 
and  remains  the  only  state  institution  in  New 
York  for  destitute  children. 

About  1850  some  of  the  cities,  counties, 
and  towns  also  had  begun  to  make  appro- 
priations to  such  institutions,  usually  in  the 
form  of  a  per  capita  allowance  for  public 
charges,  but  in   some  instances  in  gross 
amounts.    Various  institutions  in  New  York 
Local  sub-  city,  not  wishing  to  depend  upon  the  volun- 
sidizing      ^^^^  action  of  the  city  authorities  each  year, 
menced  in  secured  laws  directing  the  city  to  pay  them 
1850,        a  certain  sum  per  week  for  each  child  under 


NEW  YORK 


119 


their  care.    These  sums  were  at  first  much  and  subse- 

below  the  actual  cost  to  the  institutions,  but  ^^^^^^y 

made  man- 
various  amendmg  acts  were  secured  mcreas-  datory  for 

ing  the  rates  of  payment,  and  with  the  fall  in  New  York 
prices  after  1870,  the  city  allowances  came  to 
be  sufficient  to  meet  the  entire  cost  of  main- 
tenance, and  in  some  cases  to  leave  a  consid- 
erable margin  to  be  applied  to  the  erection  of 
new  buildings  or  the  reduction  of  indebted- 
ness. 

The  passage  of  the  children's  law  in  1875, 
directing  that  children  be  removed  from  alms- 
houses and  placed  either  in  families  or  in  in-  Removal 
stitutions  for  children,  gave  new  impetus  to  of  children 
the  system.  No  official  authorities  were  created  [j^Q^gg^"^^" 
for  placing  children  in  families,  and  though  it  1875,  re- 
was  hoped  and  expected  by  the  framers  of  the  ^^^^^^ 
law  that  it  would  result  in  a  very  great  exten-  ^een  ex- 
sion  of  the  placing-out  system,  such  has  pected,  in 
not  been  its  effect.    The  word  almshouse  increased 

111  ...  .       .      ,  placing- 

was  held  to  mean  any  mstitution  mamtamed  ^^i-^  ^^^^  in 

by  public  officers  for  the  support  of  the  poor,  further 

whether  connected  with  an  almshouse  for  g^^^^J^ 

the  subsi- 

adults,  or  otherwise.   Most  of  the  1473  chil-  ^ized  pri- 

dren  in  the  city  institutions  on  Randall's  island  vate  insti- 
and  the  almshouse  nursery  in  Brooklyn,  who 
were  not  defective  in  mind  or  body,  were  sent 
to  private  institutions,  though  some  were  sent 
to  families  in  the  west  through  the  children's 


tutions. 


120   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


aid  society.  Two  of  the  smaller  counties,  and 
one  small  city,  secured  special  laws  author- 
izing them  to  establish  children's  homes  apart 
from  their  almshouses,  but  so  fully  was  the 
transition  to  a  private  system  effected  that  of 
34,729  destitute,  neglected,  and  wayward  chil- 
dren in  institutions  (not  including  hospitals) 
in  the  state  on  September  30,  1899,  only  11 86 
were  in  public  institutions,  of  whom  825 
were  in  a  state  reformatory,  112  in  a  state 
asylum  for  Indian  children,  and  249  in  local 
public  institutions.  Another  important  factor 
in  the  situation  was  the  feature  of  the  law 
which  required  children  to  be  placed,  when 
practicable,  in  institutions  controlled  by  per- 
sons of  the  same  religious  faith  as  the  parents 
of  the  children. 

It  is  evident  that  this  plan  involved  the 
maximum  of  inducements  for  the  upbuilding 
Per  capita  of  large  institutions  and  for  the  discourage- 
payments    ^lent  of  the  placing-out  system.   The  income 

encourage      -   ,     .      .      .         ,  1    i     1    n  1 

large  insti-  ^^e  mstitutions  depended  wholly  upon  the 
tutions  number  of  children  received  and  the  length 
and  long         their  retention.    A  large  number  of  chil- 

retention  *^ 

of  inmates,  dren  could  be  supported  at  a  less  per  capita 
rate  than  a  small  number.  Being  under  the 
control  of  persons  of  their  own  religious  faith, 
the  institutions  naturally  commanded  the 
confidence  of  the  children's  parents  and  of 


NEW  YORK 


121 


their  spiritual  advisers.    The  fact  that  the 
parents,  by  placing  their  children  in  institu-  Public 
tions,  were  virtually  receiving  public  aid  was  ^^^}^^ 
so  disguised  as  not  to  be  perceived,  and  many  disguised, 
of  the  parents,  particularly  those  of  foreign 
birth,  came  to  regard  the  institutions  some- 
what in  the  light  of  free  boarding  schools. 
The  institutions,  being  in  many  cases  under 
the  control  of  reHgious  bodies,  naturally  were 
inclined  to  retain  the  children  until  thor- 
oughly instructed  and  trained  in  the  faith, 
and  also  to  receive  as  many  as  possible  of 
the  children  who  might  otherwise  be  won 
over  to  other  faiths.    In  fact,  the  largest  of  Sectarian 
all  the  institutions  was  established  because,  interest 
in  the  words  of  one  of  its  authorities,    Hun-  through 
dreds,  yes,  thousands  of  catholic  children  the  relig- 
were  lost  to  the  faith  through  a  system  fof  P^°" 

1.  -,  1,  visions  of 

placmg-outj  which  ignored  such  a  thing  as  the  law. 
religious  rights  in  the  helpless  objects  of  its 
charity.''  Sound  morality  and  good  public 
policy  are  on  the  side  of  keeping  children 
who  have  received  definite  religious  training 
and  instruction  under  the  influence  of  the 
faith  in  which  they  have  been  instructed.  In 
regard  to  younger  children,  who  as  yet  have 
no  special  religious  training  or  convictions, 
it  is  also  best,  whenever  practicable,  to  keep 
them  under  the  influences  of  the  faith  of  their 


122   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


Rivalry 
for  the 
control  of 
children. 


Census  of 
institu- 
tions has 
increased 
more  than 
twice  as 
rapidly  as 
general 
popula- 
tion. 


No  defi- 
nite knowl- 
edge of 
the  results 
of  tbe  in- 
stitution 
training. 


fathers.  The  practical  operations  of  the  chil- 
dren's law,  however,  arrayed  the  denomina- 
tional interest  on  the  side  of  the  upbuilding 
of  institutions,  as  against  placing  children  in 
families  even  of  their  own  faith,  and  brought 
to  its  support  the  strong  arm  of  the  law  and 
the  ample  resources  of  the  public  purse. 
New  institutions  were  incorporated  for  the 
purpose  of  receiving  these  pubUc  funds, 
and  there  existed  for  a  time  what  can  be 
described  only  as  a  rivalry  on  the  part  of 
various  institutions  to  secure  the  commitment 
of  large  numbers  of  children  to  their  care. 
The  result  was  inevitable;  children's  institu- 
tions of  a  size  hitherto  unknown  were  devel- 
oped, and  the  number  of  dependent  children 
increased  out  of  all  proportion  to  the  popula- 
tion. From  1875  to  1900  the  general  popula- 
tion of  the  state  increased  fifty-five  per  cent ; 
from  1875  to  1898  the  number  of  children  in 
institutions  increased  139  per  cent. 

Comparatively  few  of  the  children  were 
placed  in  families,  the  great  majority  of  them 
being  returned  to  their  parents  or  relatives, 
upon  reaching  a  self-supporting  age. 

Little  or  no  supervision  was  exercised  over 
the  few  children  placed  in  families,  and  none 
whatever  over  children  returned  to  relatives, 
so  that  it  is  impossible  to  speak  with  any 


NEW  YORK 


123 


authority  as  to  the  essential  character  of  the 
product  of  the  institutional  training.  Extrav- 
agant statements  have  been  made  both  for 
and  against  —  the  simple  fact  is  that  we  do 
not  certainly  know. 

Such  in  general  was  the  New  York  system 
prior  to  1894.     Its  distinctive  features  were 
most  strongly  emphasized  in  the  larger  cities.  A  few 
Certain   exceptions   should   also   be  noted.  ^^^^P^^^^^ 

to  the  sys- 

Richmond  county  adopted  the  system  of  temoflong 
boarding  children  in  families  until  free  homes  retention 
could  be  found,  and  in  this  way  kept  the  g^^sldies 
numbers  at  a  minimum.  Erie  county,  alarmed 
by  the  growing  expense  for  this  purpose,  has, 
since  1879,  employed  one,  and  later  two, 
agents  to  place  children  in  families.  Certain 
of  the  older  institutions,  whose  general  lines 
of  work  had  been  well  established  before  the 
law  of  1875,  have  been  comparatively  unaf- 
fected by  the  new  conditions,  and  not  being 
wholly  dependent  upon  the  income  from  pub- 
lic funds,  have  been  less  subject  to  the  tenden- 
cies of  the  per  capita  system.  The  institu- 
tions under  religious  control  have  naturally 
retained  children  longer  than  the  undenomina- 
tional institutions.  Of  1935  children  who,  on 
September  30,  1894,  had  been  supported  by 
the  city  of  New  York  more  than  five  years  in 
institutions,  161 2  or  83  per  cent  were  in 


124   THE  SUBSIDY  OR  CONTRACT  SYSTEM 

catholic  institutions ;  268  or  14  per  cent 
in  Jewish  institutions,  and  55  or  3  per  cent 
in  protestant  or  non-sectarian  institutions. 
This  was  doubtless  due  partly  to  a  lack  of 
knowledge  of  the  placing-out  system,  partly 
to  the  difficulty  of  securing  catholic  and 
Hebrew  families,  and  partly  to  a  desire  to 
retain  the  children  until  firmly  established  in 
their  respective  faiths.  A  notable  exception 
to  the  general  rule  is  the  New  York  found- 
ling hospital  (R.C.),  which  has  placed  a  very 
large  proportion  of  its  children  by  adoption 
before  they  have  reached  the  age  of  five 
years,  and  may  justly  be  regarded  as  one  of 
the  largest  placing-out  agencies  in  the  country. 

The  objectionable  features  of  the  New  York 
system  have  been  materially  modified  during 
the  past  seven  years.   The  constitutional  con- 
Mandatory  vention  of  1894  made  two  important  changes, 
legislation  j|.  {QYha,de  the  legislature  from  thereafter  com- 

rendered  ,  . 

ineffective,  pellmg  citics,  countics,  or  towns  to  make 
appropriations  to  private  institutions,  thus 
putting  a  stop  to  the  mandatory  legislation 
which  left  the  city  no  choice  but  to  pay  fixed 
gross  amounts  or  per  capita  rates  to  a  large 
number  of  private  charities.  The  courts  held 
that  this  law  was  not  retroactive  in  its  effect 
upon  earlier  legislation,  but  in  1899  a  law  was 
passed  authorizing  the  city  to  increase  or 


NEW  YORK 


125 


diminish  the  amounts  theretofore  fixed  hy  law 
to  be  paid  to  private  charities.  This  virtually 
gives  the  cities  and  counties  unlimited  home 
rule  in  this  matter. 

More  important  than  this,  however,  was 
another  constitutional  amendment,  adopted  in 
1894,  which  provided  that  no  payments  should 
be  made  by  any  city,  county,  or  town,  for  any 
inmate  of  a  private  institution,  who  is  not  re- 
ceived and  retained  pursuant  to  rules  estab- 
lished by  the  state  board  of  charities.  This  Payments 
action  by  the  constitutional  convention  was  ^^^^ 

ject  to 

to  say  in  effect  that  there  were  serious  evils  ^uies  to  be 
to  be  remedied,  and  to  refer  the  whole  sub-  estab- 
ject  to  the  state  board  of  charities,  giving  that  Jj^^  ^^^^J 
body  quasi-legislative  authority  to  deal  with  board  of 
the  subject.    The  rules  established  by  the  charities, 
state  board  in  1895,  and  continued  with  few 
changes  to  the  present,  have  as  their  most 
important  feature  a  provision  to  the  effect 
that  only  inmates  shall  be  paid  for  from  pub- 
lic funds  who  are  accepted  as  proper  public 
charges  by  the  local  authorities  charged  with 
the  relief  of  the  poor.    Such  officers  already 
had  power  to  place  children  in  institutions  as 
public  charges.    This  rule  gave  them  power, 
not  to  discharge  children,  but  to  discontinue 
the  payment  of  public  funds  for  any  child. 
Other  provisions  of  the  rules  require  detailed 


126   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


reports  concerning  each  inmate  to  the  state 
board  of  charities,  compliance  with  the  public 
These       health  law,  etc.    The  effects  of  the  adoption 
rules  act  as      thesc  rulcs,  and  of  the  measures  taken  by 

a  check  on 

the  subsidy  the  State  board  and  the  local  authorities  for 
system.      their  enforcement,  have  been  altogether  whole- 
some, and  have  held  in  check  the  tendencies 
above  mentioned. 

A  review  of  the  whole  system  shows  that 
the  number  of  children  (destitute,  neglected, 
and  wayward,  public  and  private  charges)  in 
institutions  on  September  30,  1875,  nine 
months  after  the  children's  law  took  effect. 
Statistics    was  14,773-    This  number  steadily  increased 

tem^^^^^"  ^^^^  ^^^^  until  1894,  when  it  reached 
33,558;  it  then  decreased  for  two  years,  be- 
ing 32,644  in  1896 ;  during  the  next  two  years 
it  increased  to  35,404  in  1898;  during  the 
following  two  years  it  decreased,  the  number 
in  1900  being  approximately  34,000.  It  is  not 
possible  to  give  separately  the  figures  for  de- 
linquent children,  since  many  of  them  are 
sent  to  the  same  institutions  as  the  destitute 
and  neglected,  and  separate  statistics  are  not 
kept.  Nor  is  it  possible  to  give  separate  fig- 
ures for  those  who  are  not  public  charges. 
This  proportion  is  not  large,  however,  and 
there  is  no  reason  to  think  that  it  varies  much 
from  year  to  year. 


NEW  YORK 


127 


The  effect  of  the  changes  introduced  in 
1894  was  most  marked  in  New  York  city. 
Here  the  number  of  children  in  institutions 
receiving  per  capita  allowances  from  the  city 
increased  steadily  until*  1894.  From  1890  to 
1894  there  was  an  increase  from  14,550  to 
17,076.  From  1894  to  1896  there  was  a  de- 
crease from  17,076  to  15,707.  During  1898 
the  number  increased  to  16,927,  but  from  1898 
to  1 90 1  fell  to  1 5,589.  An  analysis  of  the  New  Effect  in 
York  city  figures  shows  that,  as  a  rule,  in  in-  ■'^^^  Y^^^ 

.      .  .       .  r  .         city  of  re- 

stitutions under  the  management  of  religious  strictive 

bodies  the  tendency  to  increase  the  census  legislation, 

prior  to  1 894  was  more  marked  than  in  others,  ^J^^j^^" 

and  also  that  these  institutions  yield  less  readily  census, 
to  the  restraining  influence  of  the  new  consti- 
tution.   The  figures  are  as  follows : 

Increase  in  Census  from  1890  to  1894 

Number    Per  cent 

Catholic  institutions  1858  18.6 

Protestant  institutions  198  6.5 

Hebrew  institutions  470  30.8 

2526  17.3 

Decrease  from  1894  to  1896 

Number    Per  cent 

Catholic  institutions  539  4.5 

Protestant  institutions  507  15.6 

Hebrew  institutions  323  16.2 

1369  8.0 


128    THE  SUBSIDY  OR  CONTRACT  SYSTEM 


Commit- 
ment of 
children 
obviated 
by  tempo- 
rary relief 
to  parents. 


Increase  from  1896  to  1898 

Number  Per  cent 

Catholic  institutions  912  8.0 

Protestant  institutions  252  9.2 

Hebrew  institutions                              56  3.3 

1220  7.8 

Decrease  from  1898  to  1901 

Number    Per  cent 

Catholic  institutions   1029  8.4 

Protestant  institutions  489  16.4 

Hebrew  institutions 

(Increase)    (180)  (10.4) 

Net  decrease  1338  7.9 

Another  factor  which  promises  to  have  a 
marked  influence  upon  the  situation  is  the 
cooperation  established  in  1898  between  the 
charity  organization  society  of  New  York 
city  and  the  department  of  charities  (bor- 
oughs of  Manhattan  and  the  Bronx).  The 
society  is  given  an  opportunity  to  examine  all 
applications  for  the  commitment  of  children 
by  reason  of  destitution,  and  if  it  finds  that 
the  parents,  or  surviving  parent,  are  of  good 
character  and  so  situated  that  it  is  desirable 
that  they  should  be  enabled  to  keep  their 
children,  it  secures  for  them,  in  cooperation 
with  the  society  of  St.  Vincent  de  Paul  and 
the  united  Hebrew  charities,  the  needed 
assistance  in  the  form  of  clothing,  groceries, 
fuel,  etc.,  and  places  the  family  under  the 


NEW  YORK 


129 


care  of  one  of  its  district  committees.  This 
will  undoubtedly  reduce  the  numbers  com- 
mitted. The  establishment  in  1899  of  the  Placing- 
catholic  home  bureau,  to  find  homes  in  fami- 
lies  for  destitute  children,  is  another  impor-  children, 
tant  step  in  the  improvement  of  the  New 
York  system. 

The  method  of  reception  of  children  who 
are  to  become  public  charges  was,  prior  to 
1884,  generally  by  informal  commitment  by 
overseers  or  superintendents  of  the  poor,  or 
in  cities  by  commissioners  of  charities.  A  Method 
number  of  institutions,  under  special  laws,  ^^e^^t^oT^^' 
received  per  capita  payments  for  children  public 
received  at  their  own  volition  directly  from  charges, 
parents.  In  1881  the  penal  code  authorized 
the  commitment  of  destitute,  neglected,  and 
wayward  children  by  magistrates.  This  cus- 
tom in  New  York  city  entirely  superseded 
commitment  by  the  charities  department ;  in 
Brooklyn  both  systems  were  in  use;  but  in 
other  parts  of  the  state  the  commitments 
were  generally  by  poor-law  officers.  In  1894 
a  special  law  for  Kings  county  required 
magistrates  to  refer  applications  for  the  com- 
mitment of  children  to  the  charities  commis- 
sioner for  investigation  and  report.  A  similar 
provision,  but  limited  to  destitute  children, 
was  included  in  the  greater  New  York  char- 


130   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


Tendency 
toward 
commit- 
ment of 
destitute 
children 
by  poor 
law  offi- 
cers; of 
neglected 
and  way- 
ward chil- 
dren by 
magis- 
trates. 


Hygienic 
and  other 
conditions 
of  private 
institu- 
tions. 


ter,  taking  effect  January  i,  1898,  and  is 
continued  in  the  revised  charter  of  1901. 
The  custom  of  informal  commitment  by  the 
charities  commissioners  was  resumed  in  New 
York  city  in  1897,  and  is  now  the  usual 
method  of  committing  destitute  children.  In 
June,  1 90 1,  the  reception  of  children  over 
two  years  of  age  as  public  charges  by  sur- 
render by  parents  was  discontinued  by  a  rule 
established  by  the  state  board  of  charities. 
The  present  tendency  is  toward  the  commit- 
ment of  destitute  children  by  the  poor-law 
officers,  and  of  neglected  and  wayward  chil- 
dren by  magistrates. 

The  state  board  of  charities  is  the  only 
board  which  is  authorized  by  law  to  inspect 
the  private  institutions  for  children,  and  this 
body  has  done  so  regularly  only  in  very 
recent  years.  It  is  not  difficult,  however,  to 
secure  permission  to  visit,  through  the  cour- 
tesy of  those  in  charge.  There  is  no  doubt 
that  some  of  the  private  institutions  are 
admirably  managed,  and  that  most  of  them 
are  at  least  fairly  satisfactory  as  to  the  care 
and  education  of  the  children.  Naturally 
there  is  great  variation  between  different 
institutions,  as  each  is  under  wholly  indepen- 
dent control.  Prior  to  1886  contagious  oph- 
thalmia was  very  common,  and  many  cases 


CALIFORNIA 


U  blindness  resulted,  but  in  that  year  a  law 
\vas  passed  prescribing  minutely  many  matters 
relating  to  sanitation,  examination  and  isola- 
tion of  new  cases,  cubic  air  space  in  dor- 
mitories, distance  between  beds,  etc.  One 
notable  instance  of  an  institution  organized 
to  care  for  children  under  public  allowances, 
which  was  managed  for  the  personal  benefit 
of  one  family,  and  in  which  the  inmates 
suffered  almost  every  form  of  neglect  and 
cruelty,  was  discovered.  Through  the  efforts 
of  the  state  board  of  charities,  and  the  health 
and  charities  departments  of  New  York  city, 
the  institution  was  abolished  in  1897. 

It  has  seemed  necessary  to  consider  the 
New  York  system  at  length,  because  of  its 
exceptional  character  and  the  large  number 
of  children  supported  in  institutions  in  that 
state  (from  one  quarter  to  one  third  of  the 
entire  juvenile  institutional  population  of  the 
United  States),  and  because  it  is  so  compli- 
cated that  it  would  be  impossible  in  any  less 
space  to  make  clear  the  essential  character 
and  tendencies  of  the  system. 

California  has  a  system  somewhat  similar 
to  that  of  New  York,  except  that  the  pay-  California, 
ments  are  exclusively  from  the  state  treasury, 
and  there  is  no  official  control  over  the  ad- 


132   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


exercising 
no  official 
supervi- 
sion, pays 
private  in- 
stitutions 
per  capita 
allowances 
from  state 
funds,  on 
an  unre- 
stricted 
number  of 
inmates. 


mission  or  retention  of  the  children.  State 
appropriations  to  orphan  asylums  and  homes 
for  the  aged  have  been  customary  ever  since 
the  admission  of  California  into  the  union  in 
1850.  Section  22  of  article  iv  of  the  present 
constitution  of  CaHfornia,  adopted  in  1879, 
prohibits  the  state  from  making  appropria- 
tions to  private  charities,  except  "  institutions 
for  orphans,  half-orphans,  or  abandoned  chil- 
dren, or  aged  persons  in  indigent  circum- 
stances.'* The  constitution  also  provides  that 
whenever  any  city,  county,  or  town  shall  pro- 
vide for  the  support  of  orphans,  half -orphans, 
or  abandoned  children,  it  shall  be  entitled  to 
receive  from  the  state  the  same  pro  rata 
appropriation  as  may  be  granted  to  institu- 
tions under  church  or  other  control.  The 
statutes  of  1880,  still  in  force,  provide  that 
every  institution  in  the  state,  conducted  for 
the  care  of  orphan,  half-orphan,  or  abandoned 
children,  shall  receive  from  the  state  treasury 
the  sum  of  ;^ioo  per  year  for  each  orphan 
child,  and  ^75  per  year  for  each  half-orphan 
or  abandoned  child,  provided  that  abandoned 
children  must  have  been  in  the  institution  at 
least  one  year.  The  statute  provides  that 
children  over  fourteen  years  of  age,  or  for 
whose  specific  support  the  sum  of  ;^io  per 
month  or  more  was  paid,  should  not  be  in- 


CALIFORNIA 


eluded  under  the  act ;  also  that  no  institution 
with  fewer  than  twenty  inmates  should  be 
included.    In  1883  the  act  was  amended  so 
as  to  include  foundlings  and  other  abandoned 
infants,  for  whom  the  state  is  to  pay  $12  per 
month,  until  they  reach  the  age  of  eighteen 
months,  after  which  the  payments  are  to  be 
at  rates  above  mentioned.    The  provision 
requiring  a  census  of  twenty  is  declared  to 
mean,  in  connection  with  infant  asylums, 
twenty  admissions  per  year.    California  has 
thus,  in  effect,  told  the  private  charities  to 
take  care  of  as  many  children  as  they  like 
and  for  as  long  a  time  as  they  like,  and  that 
the  state  will  pay  the  bills.   Statistics  in  regard  The  result 
to  the  operation  of  the  California  system  are 
not  so  complete  as  are  those  of  the  system 
in  New  York,  but  they  show  a  steady  increase  the  num- 
in  the  number  of  children  supported,  or  partly  ^^^^^^^^^ 
supported,  by  the  state,  and  also  that  the  ap-  supported 
propriations  to  counties  form  a  small  portion,  by  the 
about  ten  per  cent  only,  of  the  total  appropri- 
ations for  the  support  of  children.  About 
thirty-five  institutions  are  now  receiving  state 
aid. 

The  number  of  children  supported,  and 
the  amounts  paid  by  the  state  at  various 
periods  during  the  past  fifteen  years,  are  as 
follows : 


has  been  a 
steady  in- 
crease in 


state. 


134   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


Children  Amount 

First  half  of  1885   3393  $119^897.75 

"     "    "  1890   4723  142,894.00 

"     "    "  1895   5680  170,321.53 

"     "    "  1900   7153  215,072.21 

Of  the  total  appropriations  for  the  first  half 
of  1900,  the  protestant  and  non-sectarian  in- 
stitutions received  forty-four  per  cent,  the 
Hebrew  institutions  three  per  cent,  and  the 
catholic  fifty-three  per  cent.  The  numbers 
of  each  of  the  different  classes  of  children  in 
1885  and  in  1900  are  as  follows: 


Increase 

1885 

1900 

per  cent 

.  775 

959 

237 

5399 

143-5 

increase,     Abandoned  children  .  . 

.  294 

509 

73-1 

286 

167.3 

Total  

.  3393 

7153 

110.8 

The  increase  in  the  number  of  children 
supported  by  the  state  from  1890  to  1900  was 
more  than  5 1. 4  per  cent;  in  the  population  of  the  state, 
twice  that   22.9  per  cent.    The  steady  increase  in  these 

of  the  gen-  .    .        ,  i  •  1      i  1 

eral  popu-  appropriations  has  aroused  considerable  senti- 
lation,  ment  in  favor  of  a  change  in  the  system.  The 
state  controller,  in  his  report  for  the  two 
years  ending  June  30,  1898,  speaking  of  these 
appropriations,  said :  I  believe  some  steps 
must  be  taken  to  reduce  this  expenditure. 


DISTRICT  OF  COLUMBIA  1 35 


Either  the  law  must  be  repealed,  or  the 
amount  now  appropriated  must  be  reduced,  has  caused 
I  am  not  of  a  mind  to  recommend  the  former,  f^^^^^ 

bring 

but  earnestly  commend  the  latter  to  your  ^bout  a 
consideration/'  The  governor's  message  in  change, 
January,  1899,  however,  stated  that,  "  In  view 
of  the  recommendations  of  the  controller  to 
change  the  laws  relating  to  orphans  and  half- 
orphans,  because  of  the  large  amounts  ex- 
pended therefor,  I  desire  to  call  the  attention 
of  this  legislature  to  the  fact  that  in  the  past 
we  have  expended  large  sums  for  much  less 
worthy  purposes.  In  this  connection  I  de- 
sire to  state  that  we  should  extend  the  period 
for  which  orphans  and  half -orphans  are  cared 
for,  from  fourteen  to  sixteen  years  of  age. 
There  should  not  be  any  reduction  in  the  sum 
allowed  for  the  maintenance  of  these  chil- 
dren." The  divided  sentiment  of  the  state  is  but  sc  far 
thus  clearly  manifest.  As  a  first  step  toward  ^^success- 
a  reform  of  the  system,  a  bill  was  passed  by 
the  legislature  of  1899  for  the  creation  of  a 
state  board  of  charities  with  general  advisory 
and  visitorial  powers,  but  it  was  vetoed  by 
the  governor.  A  similar  bill  was  defeated  in 
1901. 

The  subsidy  or  contract  system  has  had 
a  most  interesting  history  in  the  District  of  District  of 
Columbia.     In  1832  congress  gave  a  tract  Columbia. 


136   THE  SUBSIDY  OR  CONTRACT  SYSTEM 

of  land  valued  at  ;^  10,000  to  each  of  the  two 
then  existing  orphan  asylums,  one  being  non- 
sectarian  and  one  catholic.  Neither  of  these 
institutions  has  to  this  date  received  any  other 
aid  from  the  government.  In  1867  an  appro- 
priation of  ;^5ooo  for  maintenance  was  made 
to  the  home  for  soldiers  and  sailors'  orphans. 
These  appropriations  were  continued,  and 
gradually  the  private  contributions  decreased. 
From  1874  congress  also  reduced  its  aid, 
and  the  institution  after  struggling  for  some 
years  was  disbanded,  and  the  property  turned 
over  to  the  Garfield  memorial  hospital  as- 
sociation. Since  1869  congress  has  appro- 
priated yearly  from  1^5000  to  ^24,500  to  the 
home  for  destitute  colored  women  and  chil- 
dren. In  1872  $20,000  was  appropriated  to 
St.  Rose's  industrial  school,  and  from  1887  to 
1899  an  annual  appropriation  was  made  to  it 
for  maintenance.  In  1875  an  abandoned 
almshouse  was  given  over  to  the  industrial 
home  school,  and  since  1879  the  institution 
has  received  a  yearly  appropriation  for  main- 
tenance. Private  contributions  decreased, 
and  from  1885  to  1896  the  institution  was 
practically  dependent  upon  federal  aid.  In 
1896  the  private  corporation  was  dissolved 
and  a  board  of  trustees,  appointed  by  public 
authority,  placed  in  charge.    In  1877,  1879, 


DISTRICT  OF  COLUMBIA  1 37 

1 88 1,  1887,  and  1893,  other  institutions  were 
added  to  the  list  receiving  pubHc  aid. 

The  increasing  amounts  of  such  appropria- 
tions, and  the  difficulty  experienced  by  the 
legislators  in  finding  any  satisfactory  principle 
by  which  to  determine  what  amounts  should 
be  given,  led  to  an  agitation  for  a  change, 
which  resulted  in  1890  in  the  creation  of  the  The  super- 
office  of  superintendent  of  charities.    It  was  i^^^^^ent 

11  r    1  •         1  11  appointed 

the  duty  of  the  superintendent  to  study  the  to  control 
situation,  make  recommendations  as  to  specific  the  system 
appropriations,  and  also  as  to  changes  in  the  ^^^^  -^g 
general  plan.    The  first  superintendent.  Prof.  aboHtion. 
Amos  G.  Warner,  appointed  by  President 
Harrison,  became  convinced  within  a  year 
that  the  subsidy  or  contract  system  could  not 
be  reformed,  but  must  be  abolished.    As  a 
step  in  this  direction,  the  board  of  children's 
guardians  was  created  in  1892  as  a  public  A  board  of 
body,  appointed  by  the  judges  of  the  district,  children's 

.  .  guardians 

to  act  for  the  district  in  its  care  of  destitute  created  to 
children.    The  first  agent  of  this  board  was  assume 
called  to  that  position  from  the  post  of  state 
agent  of  the  Minnesota  state  public  school  children, 
for  dependent  children.    All  grants  to  private 
institutions  were  reduced  forty  per  cent,  and 
this  amount  was  given  to  the  board  for  its 
work.     All  children  becoming  dependent 
upon  the  public  were  to  be  committed  to  the 


direct  con- 
trol of 


138    THE  SUBSIDY  OR  CONTRACT  SYSTEM 


Strong  op- 
position 
develops, 


but  the 

efficiency 
of  the 
board's 
work 


results  in 
a  steady- 
increase  in 
its  powers 
and  influ- 
ence. 


guardianship  of  this  board,  which  might  place 
them  at  board  in  institutions  or  in  families,  or 
in  free  homes  in  families.  Meanwhile,  with 
the  advent  of  the  Cleveland  administration  in 
1893,  a  superintendent  of  charities  favorable 
to  the  subsidy  system  was  appointed.  Strong 
opposition  to  the  board  of  children's  guardi- 
ans arose ;  its  appropriation  was  diminished 
by  nearly  one  half ;  and  several  of  the  subsi- 
dies were  restored  in  whole  or  in  part.  These 
conditions  continued  for  three  years,  during 
which  time,  notwithstanding  all  the  unfavora- 
ble circumstances,  the  work  of  the  board  in- 
creased in  efficiency  and  proved  its  humane 
and  economical  value.  At  the  end  of  this 
period  a  joint  select  committee  of  both  houses 
of  congress  made  an  extended  investigation 
of  the  whole  subject,  and  presented  a  volumi- 
nous report  which  was,  on  the  whole,  ex- 
tremely favorable  to  the  public  board  of 
children's  guardians.  With  the  advent  of 
the  McKinley  administration,  the  agent  of  the 
board  of  children's  guardians  was  appointed 
as  superintendent  of  charities,  in  which  posi- 
tion his  influence  has  naturally  tended  to 
strengthen  the  board  of  children's  guardians 
and  to  restrict  further  the  subsidy  system.  ; 
In  1897  the  house  of  representatives  passed  | 
a  bill  abolishing  the  subsidy  system,  but  the 


MARYLAND 


senate  forced  a  partial  compromise.  The 
same  occurred  in  1898,  in  each  case  the 
powers  of  the  children's   guardians  being 
strengthened  and  its  appropriations  increased, 
while  the  number  of  private  institutions  re- 
ceiving  grants  was   reduced.     By  an   act  The  sub- 
approved  in  June,  1900,  the  office  of  superin-  sidysys- 
tendent  of  charities  was  abolished,  and  in  its  ^liscour- 
place  a  board  of  five  unpaid  members,  with  a  aged  by 
salaried  secretary,  was  created.     This  had  ^^^^ 
been  recommended  by  the  then  superintend-  charities 
ent  of  charities,  and  the  new  board  has  de-  estab- 

clared  itself   in  opposition  to  the  subsidy  ^^^^^^^^ 

^  ,  1900. 

system.    The  board  of  children's  guardians 

has  been  further  strengthened,  considerably 

more  than  half  of  the  district  expenditures  for 

children  being  now  expended  directly  through 

this  board. 

The  only  other  state  in  which  the  system 
of  public  support  in  private  institutions  can 
be  said  to  be  the  prevailing  one  is  Maryland.  Subsidies 
Here  the  state  appropriates  gross  amounts,  Mary- 
a  total  of  about  ;^20,ooo  per  year,  to  eight 
or  ten  private  institutions,  and  the  city 
of  Baltimore  also  makes  appropriations  of 
gross  sums  amounting  to  about  12,000  per 
year  to  some  six  institutions.  Under  the 
new  charter  which  took  effect  in  1900,  a  city 
board  of  supervisors  of  charities  was  created 


140   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


Oregon's 
policy 
similar  to 
that  of 
California. 


Subsidies 
not  a  pre- 
dominant 
factor  in 
Pennsyl- 
vania, 


owing  to 
the  work 
of  the  chil- 
dren's aid 
societies, 
and  the 
prohibi- 
tion of 


and  given  important  powers  as  to  admission, 
transfer,  and  discharge  of  children  who  are 
public  charges  in  private  institutions. 

Oregon  also  makes  appropriations  in  gross 
amounts  to  some  six  private  institutions,  a 
total  amount  of  about  ;^26,ooo  per  year,  and 
destitute  children  are  placed  in  these  institu- 
tions by  county  officials.  In  1901  ^12,000 
was  appropriated  to  be  paid  to  institutions 
not  receiving  specific  appropriations,  for  the 
support  of  orphans  and  foundlings,  at  the 
rate  of  ;^S0  per  annum  each.  Oregon  thus 
seems  inclined  to  follow  in  the  footsteps  of 
California. 

In  Pennsylvania  the  state  appropriates 
gross  amounts  to  a  considerable  number  of 
children's  homes,  hospitals,  and  other  institu- 
tions. These  appropriations  to  children's 
institutions  and  societies  have  increased  from 
;^  1 0,000  given  to  one  institution  in  1875-6  to 
^64,500  given  to  twenty-six  institutions  in 
1 899-1900.  The  institutions  receiving  these 
grants,  however,  do  not  as  a  rule  receive 
destitute  children  from  public  officials,  who 
in  most  parts  of  the  state  cooperate  with  one 
of  the  children's  aid  societies.  The  subsidy 
system  is  not  the  controlling  factor  in  the 
public  care  of  children  in  this  state,  but  if  it 
continues  to  develop,  it  is  likely  to  give  rise 


OTHER  STATES 


141 


to  serious  disturbances  in  the  present  system,  appropria- 
Its  growth  has  doubtless  been  greatly  re-  tionsto 

scdianan 

striated  by  a  constitutional  provision  pro-  institu- 
hibiting    state   appropriations   to   sectarian  tions. 
institutions. 

In  Delaware  the  state  makes  appropria- 
tions of  gross  amounts  to  two  institutions,  Delaware. 

and  one  county,  containing  the  city  of  Wil- 
mington, also  gives  aid  in  gross  amounts  to 
four  institutions. 

North  Carolina  grants  aid  in  gross  amounts 
to  two  institutions,  which,  however,  decline  North 
to  receive  children  from  almshouses.    One  Carolina, 
county.  Buncombe,  has  organized  a  children's 
home  as  a  public  institution. 

Maine  makes  appropriations  of  gross 
amounts  to  several  private  institutions  which  Maine, 
receive  some  children  from  almshouses.  The 
women's  Christian  temperance  union  of  this 
state  is  active  in  placing  children  from  alms- 
houses in  families. 

Milwaukee  has  an  interesting  history  in 
regard  to  subsidies.  Although  Wisconsin 
has  a  state  school  to  which  Milwaukee 
contributes  its  share  of  taxation,  this  city  Milwau- 
continued  until  1897  board  its  destitute 
children  in  a  number  of  private  institutions. 
In  1897,  on  account  of  the  increasing  expense 
and  the  undue  retention  of  the  children  in 


142    THE  SUBSIDY  OR  CONTRACT  SYSTEM 


by  es- 
tablishing 
a  county 
home, 


reduces 
the  num- 
ber of 
public 
charges 
seventy- 
five  per 
cent. 


the  private  institutions,  this  plan  was  discon- 
tinued, and  the  county  established  a  chil- 
dren's home,  under  the  direction  of  a  board 
of  trustees  of  four  members,  appointed  by 
the  chairman  of  the  board  of  supervisors. 

In  response  to  an  inquiry  as  to  why  the 
county  established  this  institution,  instead  of 
sending  the  children  to  the  state  institution, 
a  competent  authority  writes  : 

'*The  state  school  receives  no  children 
under  three  years  of  age,  and  only  those  of 
sound  mind  and  body.  The  county  had 
many  ineligible  under  the  second  heading, 
and  also  a  number  for  whom  only  temporary 
shelter  was  needed." 

The  city  had  been  supporting  300  children 
in  private  asylums.  When  the  county  home 
was  opened  and  notice  was  sent  to  the  asy- 
lums to  transfer  the  children  thither,  only  a 
very  few  children,  all  of  whom  were  defec- 
tive, were  sent,  the  asylums  preferring  to 
keep  the  children  at  their  own  expense.  The 
county  home,  with  a  capacity  of  125,  has 
never  been  fully  occupied.  After  it  had 
been  open  about  one  year  it  had  some  seventy 
inmates.  During  the  next  six  months,  by 
placing  out  some  children,  and  by  returning 
others  to  their  parents,  the  number -was  re- 
duced to  thirty.    Since  January  i,  1900,  the 


NEW  HAMPSHIRE 


census  has  varied  from  sixty  to  ninety,  about 
one  fourth  of  the  number  supported  under 
the  former  plan.  The  system  has  been 
strongly  attacked,  and  efforts  have  been  made 
by  institutions  formerly  receiving  public 
funds  to  bring  about  the  renewal  of  the  cus- 
tom, but  thus  far  without  success. 

New  Hampshire,  not  being  proud  of  the 
distinction  of  having  more  children  in  alms- 
houses in  i8go  in  proportion  to  its  population 
than  any  other  state  in  the  union,  passed  a  New 
law  in  1895  directing  local  authorities  to  place 
destitute  children  in  orphan  asylums,  homes,  system, 
or  private  families,  and,  as  soon  as  practi-  under  the 
cable,  to  find  permanent  homes  for  them  and  ^^^^^j^^^^^ 
make  contracts  for  their  education  and  sup-  state  board 
port  during  minority,  which  contracts  are  ofchari- 
subject  to  approval  or  rescission  by  the  state 
board  of  charities,  created  by  the  same  stat- 
ute.   Under  this  law,  all  the  children,  except 
a  few  who  were  defective,  were  removed  to 
asylums  or  families.    An  effort  to  repeal  the 
law  was  made  by  the  local  authorities  in  1897, 
but  the  result  was  simply  that  the  law  was 
made  more  drastic  and  the  powers  of  the 
state  board   of  charities   increased.  The 
board  was  directed  to  visit  the  homes  and 
families  in  which  all   such  children  were 
placed,  and  to  assist  the  county  and  town 


144   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


Since  the 
removal  of 
children 
from  alms- 
houses the 
number  of 
public 
charges 
has  not 
been 

decreased. 


Efforts  to 
improve 
efficiency 
of  placing- 
out  work. 


officials  in  securing  homes  for  the  children. 
As  might  be  expected,  there  is  a  marked  ten- 
dency to  place  the  children  in  institutions 
rather  than  in  families. 

In  January,  1900,  a  card  record  was  made 
of  every  dependent  child  in  the  state.  On 
December  i  of  this  year  this  record  showed 
that  443  children  under  sixteen  years  of  age 
were  being  supported  at  public  expense.  Of 
this  number  238  were  in  private  institutions, 
and  were  being  paid  for  by  counties  at  rates 
ranging  from  to  $1.50  per  week;  113 
were  being  boarded  in  families  at  similar 
rates ;  twenty-five  were  in  state  institutions  ; 
and  sixty-seven  (mostly  feeble-minded  or 
infants)  were  in  almshouses.  As  there  were 
but  184  children  public  charges  in  1890  (all 
in  almshouses),  it  would  seem  that  New 
Hampshire,  while  justly  entitled  to  great 
credit  for  removing  the  children  from  alms- 
houses, might  well  study  the  experiences  of 
New  York  and  California.  A  successful  sys- 
tem of  volunteer  visiting  has  been  inaugu- 
rated, and  in  1901  the  state  board  of  charities 
was  given  a  paid  secretary,  who  will  devote 
his  time  largely  to  visiting  the  placed-out 
children  and  overseeing  the  work  of  the  vol- 
vmteer  visitors. 

In  Tennessee,  four  or  five  counties  make 


ADVANTAGES 


145 


per  capita  appropriations  to  private  institu-  Tennes- 
tions  for  the  support  of  children. 

Doubtless  there  are  other  instances  of  state, 
county,  or  municipal  appropriations  to  chil- 
dren's institutions'  not  included  in  the  above, 
but  if  so,  they  are  of  small  sums  and  do  not 
amount  to  a  general  system  for  the  care  of 
children  in  any  state. 


The  advantages  claimed   for   this  plan 
are : 

(a)  That  it  removes  the  whole  matter  from 
the  influences  of  partisan  politics  and  the 
dangers  of  the  spoils  system.    To  most  per-  Freedom 
sons  who  favor  the  contract  system,  excepting  ^^^^ 
those  who  do  so  because  of  the  importance  cklmed 
they  attach  to  religious  instruction,  this  con-  under  the 
sideration  is  doubtless  the  prevailing  one.  subsidy  or 

rr^i       1         1        r  -IT  contract 

The  thought  of  entrustmg  the  lives  and  the  system, 
training  of  young  children  to  men  who  may 
be  drawn  from  the  ranks  of  ward  heelers," 
is  justly  alarming  to  all  thoughtful  citizens. 
As  we  have  indicated,  however,  in  our  con- 
sideration of  state  systems,  experience  does 
not  show  that  state  institutions  for  children 
have  suffered  largely  from  partisan  influences. 
It  has  also  to  be  borne  in  mind  that  pri- 
vate institutions  which  are  largely  dependent 
upon  the  public  for  support  are  not  always 


146   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


The  expe- 
rience of 
Pennsyl- 
vania in 
this 

respect. 


Interest  of 
private 
citizens  in 
the  chil- 
dren's 
welfare 
stimu- 
lated. 


Removal 
from  the 
"  pauper " 
stigma 


wholly  removed  from  partisan  influences,  and 
that  pubKc  appropriations  to  private  charities 
have  more  than  once  proved  to  be  the  source 
of  serious  political  evils.  The  extent  to 
which  such  appropriations  are  now  used  to 
strengthen  a  political  organization  in  Penn- 
sylvania were  set  forth  in  a  remarkable  man- 
ner in  a  series  of  editorials  in  the  Philadelphia 
Times  in  July,  1901,  one  of  which  is  repro- 
duced in  Charities  of  August  3,  1901. 

{h)  That  it  enlists  the  interest  of  public- 
spirited  and  benevolent  citizens,  who,  as 
managers  of  the  institutions  or  otherwise  con- 
nected therewith,  will  visit  them  frequently, 
give  careful  attention  to  their  administration, 
and  in  many  cases  take  an  active  interest  in 
the  welfare  of  individual  children.  There  is 
some  truth  in  this  assertion,  though  many  of 
these  citizens  might  be  equally  interested  if 
the  institutions  received  no  public  aid.  Nor 
are  state  institutions  wholly  lacking  in  power 
to  attract  the  interest  and  elicit  the  active 
efforts  of  some  of  the^  best  citizens  in  their 
communities. 

{c)  That  the  removal  of  the  children  from 
all  connection  with  poor-law  administration 
and  public  officials  saves  them  from  being 
known  in  the  community  as  pauper  chil- 
dren."   This  is  clearly  a  great  advantage  as 


OBJECTIONS  147 

compared  with  the  almshouse  system  or  any 
system  in  which  the  children  are  kept  in  in- 
stitutions  in  any  way  connected  with  alms-  advantage, 
house  administration.    This  claim  does  not  but  at- 
hold,  however,  in  comparison  with  the  state  ^^^^^^^^j^^ 
public-school  system.    It  may  fairly  be  ques-  g^ate 
tioned  whether  the  attitude  of  the  community  school  sys- 
toward  the  children  in  the  state  public  schools 
is  not  distinctly  more  favorable  than  toward 
those  in  orphan  asylums,  protectories,  and 
other  similar  institutions. 

(d)  That  it  is  economical.    It  is  claimed 
that  private  institutions  are  more  economi-  Cost  per 
cally,  not  to  say  honestly,  managed  than  pub-  ^^P^^^  ^^^s 
lie  ones,  and  that  the  per  capita  allowance  institu- 
made  by  the  public  authorities  is  distinctly  tions. 
less  than  would  be  required  to  support  the 
children  in  public  institutions. 

It  is  urged  against  the  subsidy  system : 
(a)  That  it  encourages  parents  to  throw 
their  children  upon  the  public  for  support,  The 
because  they  naturally  have  much  greater  subsidy 

n  1  .         .  ...  .  system, 

confidence  m  private  institutions,  especially  however, 
when  managed  by  persons  of  their  own  relig-  encour- 
ious  faith  and  vouched  for  by  their  spiritual  ^^^^ 

^  undue 

advisers.    This  tendency  is  further  strength-  number  of 

ened  by  the  fact  that  this  plan  creates  a  large  parents  to 
number  of  institutions,  scattered  throughout 


148   THE  SUBSIDY  OR  CONTRACT  SYSTEM 


the  State,  thus  permitting  children  to  be  kept 
near  their  former  homes  and  subject  to  f re- 
ask  for  quent  visitation  by  their  parents.  While  this 
relief  from  jg  advantage  in  caring  for  children  whose 
port^of  parents  should  be  encouraged  to  visit  them, 
their  it  is  a  decided  disadvantage  in  dealing  with 
children.  xhosQ  who  should  be  separated  from  their 
parents  during  their  entire  childhood. 

(d)  That  it  removes  all  incentive  for  keep- 
ing the  number  in  the  institutions  small,  either 
by  careful  sifting  of  applications  for  admis- 
sion or  by  maintaining  an  active  placing-out 
Nor  is       system.   This  is  especially  true  under  the  per 
there  any    capita  systcm  when  the  per  capita  payment 

incentive,        ^  x  x        x  j 

under  per  nearly  or  quite  equals,  or  even  exceeds,  the 
capita  pay-  cost  of  maintenance.  This  tends  to  result  in 
ments,  to        increase  in  the  number  of  children  in  in- 

keep  the 

number  in  stitutions,  increasing  indefinitely  the  public 
an  institu-  burden,  and  subjecting  large  numbers  of  chil- 
dren to  the  influences  of  institutional  life,  when 
they  might  better  be  cared  for  by  their  own 
parents  or  placed  out  in  families  for  adoption. 
The  history  of  the  contract  system  in  New 
York,  California,  and  elsewhere,  proves  that 
it  is  difficult,  though  recent  New  York  expe- 
rience indicates  that  it  is  possible,  to  restrain 
these  tendencies. 

(c)  The  contract  or  subsidy  system  makes 
proper  classification  of  children  difficult.  If 


POSSIBILITIES  OF  THE  SYSTEM        1 49 


the  institutions  were  all  under  one  manage- 
ment, it  would  be  easy  to  distribute  the  Proper 
inmates  amone^  them  on  some  rational  classi- 
fication,  which  would  aid  in  securing  their  cult, 
proper  mental  and  moral  training.  This  is 
next  to  impossible  when  each  institution  is  a 
law  unto  itself.  One  of  the  most  serious  and 
persistent  evils  of  the  New  York  system  is 
the  mingling  of  destitute,  neglectdi,  and  de- 
linquent children  in  the  same  institutions. 

While  the  net  results  of  the  operations  of 
the  various  systems  until  very  recently  would 
seem  to  favor  the  Michigan  plan,  it  does  not  Future 
by  any  means  follow  that  it  would  be  wise  ^^difica- 

-      .        1  tion  may 

for  the  states  now  having  the  contract  system  overcome 
to  abolish  it  and  adopt  the  state  system.  On  these 
the  contrary,  it  is  much  better,  especially  in 
New  York,  that  the  present  promising  efforts 
to  overcome  the  earlier  defects  of  the  con- 
tract system  should  be  encouraged,  and  given 
the  fullest  and  fairest  trial.  It  is  entirely 
possible  that  these  efforts  may  prove  to  be 
permanently  effective,  and  that  a  combination 
of  private  effort  and  public  aid  may  be  worked 
out,  superior  to  any  system  now  in  operation. 


CHAPTER  VIII 


THE  BOARDING-OUT  AND  PLACING-OUT 
SYSTEM 

Historical  sources  and  discussion  :  As  to  Massachu- 
setts, see  reports  of  state  board  of  charities,  1875- 
Reports  of  children's  institutions  department,  Boston, 
1896-  .  Article  by  Mrs.  A.  B.  Richardson  in  report  of 
committee  on  history  of  child-saving,  1893  >  ^ilso  proceed- 
ings of  the  national  conference,  1880,  1883,  1884,  1886,  and 
1889.  "The  proposed  state  children's  bill  :  Why  it  should 
be  established,"  by  G.  S.  Hale  (Ellis,  Boston,  1895).  The 
state  primary  school,  closing  report,  1895.  Pennsylvania  : 
Homer  Folks  in  report  of  committee  on  history  of  child- 
saving,  1893.  Reports  of  children's  aid  society  of  Pennsyl- 
vania, 1882-  .  "The  legal  status  of  children  indentured," 
Talcott  Wilhams  (Myers  &  Shinkle  Co.,  Pittsburgh,  1896). 
"The  advanced  American  plan  for  homeless  children," 
Talcott  Williams,  London  Times,  October  24,  1894.  "Care 
of  dependent  children  in  New  York  and  Philadelphia  con- 
trasted," Anna  T.  Wilson,  State  Charities  Record,  December, 
1891  (State  charities  aid  association.  New  York).  Proceed- 
ings of  the  association  of  directors  of  the  poor,  1873- 
New  Jersey  :  report  of  the  New  Jersey  commission  on  de- 
fective, delinquent,  and  dependent  children,  1898  (Mac- 
Crellish  &  Quigley,  Trenton).  Reports  of  state  board  of 
children's  guardians,  1899-  .  Illinois  ;  see  annual  report 
of  Illinois  children's  home  and  aid  society,  Children's  Home 
Finder,  Chicago,  August,  1 90 1. 

Massachusetts,  Pennsylvania,  and  New 
Jersey  have  systems  of  caring  for  destitute 
150 


MASSACHUSETTS 


iSi 


children  which  differ  from  all  the  preceding, 
in  that  the  children  are,  as  a  rule,  boarded  in 
private  families  until  permanent  free  homes 
in  families  are  found  for  them.  These  states 
differ  radically  in  that  Massachusetts  and  New 
Jersey  do  the  work  directly  through  public 
officials,  while  in  Pennsylvania  the  counties, 
as  a  rule,  work  through  a  private  society,  the 
children's  aid  society  of  Pennsylvania. 

It  will  be  remembered  that  the  opening  6f 
the  last  quarter  of  the  century  found  Massa- 
chusetts with  her  state  juvenile  paupers  col- 
lected in  the  state  primary  school  at  Monson,  Early  his- 
except  that  some  seventy-five  remained  at  the  ^^^y 
state  almshouse  at  Tewksbury,  and  a  less  chusetts 
number  at  the  third  state  almshouse,  now  system, 
called  the  state  farm,  at  Bridgewater.  There 
was  also  a  state  visiting  agency  charged  with 
the  supervision  of  about  a  thousand  children 
placed  out  in  families  from  the  state  primary 
school  and  the  two  state  reformatories.  The 
various  cities  and  towns  cared  for  their  poor, 
adult  and  juvenile,  as  they  chose.    In  1879  state 
the  state  work  was  reorganized,  the  state  ^^^^^ 
primary  school  and  the  state  reform  schools  becomes 
being  placed  under  a  board  of  trustees,  and  respon- 
the  visiting  agency  was  abolished,  its  duties 
being  assigned  to  the  state  board  of  health, 
lunacy,  and  charity,  which  board  was  also 


152         THE  BOARDING-OUT  SYSTEM 


given  general  supervision  over  all  the  state 
charitable  institutions,  the  hospitals  for  the  in- 
sane, and  the  reform  schools  just  mentioned. 
In  addition  to  the  work  of  the  paid  visitors,  a 
system  of  visitation  by  volunteers  residing  in 
the  locaUties  in  which  the  children  were  placed 
was  organized.  This  was  found  to  be  of 
special  value  for  girls  over  twelve  years  of 
age,  and  the  volunteer  visitation  was  gradu- 
ally restricted  to  this  class. 

In  1882  the  boarding  out  of  children  from 
the  state  primary  school  was  authorized  by 
Boarding  ^LVid  was  actually  begun  in  December  of 
ized  1882  ^^^^  year.  In  the  same  year  legislation  was 
enacted  for  the  commitment  to  the  custody  of 
the  state  board  of  neglected  children  (between 
three  and  sixteen  years  of  age)  by  the  courts ; 
the  board  was  also  authorized  to  board  chil- 
dren in  families  directly,  i.e.  without  passing 
through  the  primary  school.  In  the  follow- 
ing year  legislation  was  enacted  for  the  com- 
mitment to  the  board  by  overseers  of  the  poor 
of  infants  under  three  years  of  age.  All 
these  children  were,  as  a  rule,  placed  tempo- 
rarily in  the  state  primary  school,  and  later 
placed  out  in  families,  with  or  without  board. 
From  time  to  time  laws  have  been  enacted 
extending  the  classification  of  children  com- 
mitted to  the  custody  of  the  state  board  of 


MASSACHUSETTS 


charity.    In  1880  a  law  was  enacted  for 
the  commitment  of  foundlings  to  its  care. 
These  children  were,   after    1884,  placed 
directly  in  families  at  board.    Gradually,  as 
the  boarding-out  and  placing-out  systems 
developed,  it  was  found  possible  to  decrease  By  exten- 
the  numbers  remaining  in  the  state  primary  ^^^^  °f 
school.     In  1876  this  institution  sheltered  outand^" 
485  children;  on  September  30,  1894,  the  piacing- 
number  had  been  reduced  to  12 1.    The  num-  ^^^work 
ber  of  children  boarded  in  families  had  mean- 
while increased  to  582,  and  the  number 
self-supporting  in  families  to  1459.  1^94 
the  state  board  of  charity  had  placed  so  many 
children  from  the  state  primary  schools  in 
families  that  the  abolition  of  the  school  was 
possible,  and  in  1895,  at  the  suggestion  of  the  the  state 
trustees  of  state  institutions,  the  buildings  f^^^^^ 

°  becomes 

were  given  over  to  the  state  to  be  used  as  a  unneees- 
hospital  for  epileptics,  most  of  the  remaining  sary,andis 
children  being  placed  in  families  at  board.  ^^^^^^^^> 
Since  that  date  Massachusetts  has  cared  for 
its  destitute  and  neglected  children  who  are 
state  charges  wholly  in  families,  and  board- 
ing places  have  been  secured  for  a  few  of  the 
younger  children  committed  to  the  reform 
schools. 

Notwithstanding  the  new  classes  of  chil- 
dren who  have  been  added  to  the  state  list, 


154 


THE  BOARDING-OUT  SYSTEM 


Statistics 
show  a 
small  num- 
ber of 
public 
depend- 
ents. 


Boston 
removed 
first  its 
pauper 
boys 

(1877) 

and  then 
the  girls 
(1881)  to 
a  chil- 
dren's 
home, 
separate 
from  adult 
paupers. 


the  number  maintained  at  state  expense  has 
increased  only  from  1142  in  1876  to  2051  in 
1900,  including,  in  both  years,  inmates  of 
reform  schools,  while  the  number  of  children 
under  the  supervision  of  the  state,  but  self- 
supporting  in  families,  increased  from  1000 
in  1876  to  1 69 1  in  1900.  The  percentage  of 
juvenile  state  charges  in  institutions,  in  free 
homes,  and  in  boarding  homes,  in  1876  and 
in  1900,  are  as  follows :  ^ 

1876  1900 

Per  Per 

cent  cent 

In  institutions  51  15 

In  families  without  board  47  45 

In  families  with  board     »  2  40 

In  the  city  of  Boston,  destitute  and  neg- 
lected children  were  maintained  in  1875  at 
the  house  of  industry  (almshouse  and  work- 
house) on  Deer  island,  except  that  the  older 
pauper  boys  were  in  one  wing  of  the  house 
of  reformation.  Although  probably  not  in 
actual  association  with  adult  paupers,  the  fact 
that  they  were  on  the  same  island  and  under 
the  same  authorities,  associated  the  two  classes 
in  the  public  mind.  In  1877  a  distinct  ad- 
vance was  made  by  the  removal  of  the  boys 

1  This  whole  matter  is  very  clearly  set  forth  in  a  chart 
opposite  page  40  of  the  twenty-second  annual  report  of  the 
state  board  of  charity. 


MASSACHUSETTS 


to  what  had  been  the  Roxbury  almshouse, 
but  which  now  became  the  Marcella  street 
children's  home.  On  March  i,  1878,  there 
were  618  children  under  the  care  of  the  city 
—  160  '^pauper  children,"  128  neglected  chil- 
dren, 120  truants,  and  210  juvenile  offenders. 
In  1 88 1  another  advance  was  made  by  remov- 
ing to  a  building  near  the  Marcella  street  home, 
and  thereafter  reckoned  as  a  part  of  it,  the  pau- 
per and  neglected  girls  from  Deer  island.  This 
marked  the  final  separation,  territorially,  of 
destitute  children  from  pauper  adults  in  Bos- 
ton, although  they  remained  under  the  same 
administrative  control  until  June,  1897,  when 
the  children  were  placed  under  the  control 
of  a  board  of  seven  unpaid  trustees.  About  Boarding 
1889,  the  city  also  began  to  board  out  the 
younger  children,  especially  infants.  Agents 
were  employed  also  for  finding  free  homes 
for  children.  On  January  31,  1898,  there 
were  420  children  under  supervision  by  the 
city  children's  department  in  free  homes,  and 
325  in  boarding  homes.  On  the  same  date 
there  were  only  160  children  in  the  Marcella 
street  home,  the  number  having  been  reduced 
from  321  earlier  in  the  year,  by  the  extension 
of  the  placing-out  and  boarding-out  systems. 
Later  in  the  year,  in  November,  1898,  the 
Marcella  street  home  was  discontinued  alto- 


out  com- 
menced in 
1889. 


156         THE  BOARDING-OUT  SYSTEM 


gether,  the  children  being  placed  out  in 
Abandon-  families.  Thus  by  a  natural  development  of 
the^chil  institutional  and  placing-out  systems,  side 

dren's       by  sidc,  the  city  of  Boston,  in  1898,  followed 
home,       the  example  of  the  state,  which,  four  years 
earlier,  had  abandoned  its  state  primary 
school,  both  city  and  state  thus  arriving  by 
gradual  stages  at  the  plan  of  caring  for  all 
destitute  and  neglected  children  in  family 
Further     homes.    The  parental  (truant)  school,  which 
advance  m         been  differentiated  from  the  house  of 

classifica' 

tion.        reformation  on  Deer  island  in  1877, 

removed  to  West  Roxbury  in  May,  1895, 
another  step  in  classification.  On  December 
31,  1900,  there  were  under  the  care  of  the 
department  1396  children,  as  follows: 

Dependent  and  neglected  children 

boarding  in  families  430 

in  free  homes  in  families     ....  305 
in  various  institutions 

(mentally  defective)    .    .    .    .  133 

868 

Truants  in  parental  school   196 

Juvenile  offenders 

in  house  of  reformation  88 

in  free  homes  in  families  ....  43 
with  relatives  on  probation  .  .  .  154 
elsewhere  47 

332 
1396 


MASSACHUSETTS 


In  the  cities  and  towns  of  Massachusetts, 
other  than  Boston,  destitute  children  are 

under  the  charge  of  overseers  of  the  poor,  Various 

and  are  either  kept  in  almshouses,  or  placed  P^^^visions 

r      M.  11  •      r        1  other 

m  families  to  board  or  m  free  homes,  or  commimi- 
boarded  in  institutions.    Children  cannot  be  ties  of  the 
legally  retained  in  an  almshouse  for  a  longer 
period  than  two  months  unless  they  are 
(i)  under  four  years  of  age ;  (2)  under  eight 
years  of  age,  with  their  mothers ;  or  (3)  so 
defective  in  body  or  mind  as  to  render  their 
retention  in  the  almshouse  desirable.    In  a 
few  instances  the  children  are  cared  for 
through  the  Boston  children's  aid  society. 
The  state  board  of  charity  is  charged  with 
the  duty  of  visiting,  at  least  once  each  year, 
children  supported  by  cities  and  towns.    If  Restric- 
children  are  retained  in  almshouses  contrary 
to  law,  the  state  board  is  authorized  to  remove  ^are. 
them  therefrom,  and  to  charge  the  cost  of 
their  support  to  the  town  of  their  settlement. 
The  number  of  children  fully  supported  by 
city  and  town  authorities  March  31,  1900, 
was  as  follows : 

i 

In  town  almshouses  192 

In  other  institutions  (mostly  municipal 

children's  homes)  189 

In  private  families  733 

1114 


158 


THE  BOARDING-OUT  SYSTEM 


The  ma- 
jority of 
children 
now  state 
wards ; 


and  the 
tendency 
is  toward 
exclusive 
state  care. 


Super- 
visory and 
executive 
functions 


The  number  of  children  supported  by  the 
state  on  September  30,  1900,  not  including 
inmates  of  reform  schools,  was  1493. 

Massachusetts  thus  supports  nearly  one 
and  a  half  times  as  many  children  as  its  cities 
and  towns,  including  Boston.  For  some 
years  the  state  board  of  charity  has  recom- 
mended that  the  system  be  unified  and  that 
all  destitute  and  neglected  children  become 
wards  of  the  state,  supported  from  state 
funds,  and  under  the  control  of  the  state 
board  of  charity.  A  long  step  in  this  direc- 
tion was  taken  in  1900  by  the  enactment  of 
a  law  authorizing  this  board  to  provide  for 
dependent  children,  without -regard  to  set- 
tlement," at  the  request  of  parents,  guardians, 
or  overseers  of  the  poor;  also  requiring 
courts  and  magistrates  to  commit  destitute 
and  neglected  children  to  the  state  board, 
unless  the  local  overseers  of  the  poor  object. 
The  logical  outcome  would  seem  to  be  an 
exclusive  state  system  in  the  near  future. 

There  was  in  1895  a  considerable  movement 
for  making  the  state  board  of  lunacy  and  char- 
ity a  strictly  supervisory  body  and  for  creating 
a  state  children's  department,  which  should  be 
known  as  the  children's  bureau,  with  trustees 
appointed  by  the  governor,  their  work  to  be 
under  the  supervision  of  the  state  board  of 


PENNSYLVANIA  1 59 

charity.    This  failed  to  pass  the  legislature, 

and  the  executive  care  of  the  children  in  the  not  dif- 

state  board's  custody  or  care  remains  without  ferentiated 

supervision  by  any  independent  board.    On  g^^te 

July  I,  1898,  the  state  board  reorganized  its  board. 

work  by  abolishing  its  previous  departments 

of  indoor  and  outdoor  poor,  and  creating 

a  superintendent  of  state  adult  poor  and  a 

superintendent  of  state  minor  wards,  thus 

collecting  all  children  in  its  custody  under 

one  administrative  control. 

Pennsylvania,  when  the  "children's  law'* 
was  passed  in  1883,  left  the  local  authorities 
to  provide  for  the  children  as  best  they  could. 
Although  the  state  subsidizes  many  private 
institutions,  it  does  so  on  the  general  ground  Pennsyl- 
that  they  are  doing  good  and  presumably  pre-  "^^^^^'^^ 
venting  persons  from  becoming  public  charges,  eluding 
and  not  because  the  institutions  receive  and  children 
care  for  public  dependents.    The  county  sys-  f 

Jr  r  J     J  houses, 

tem  of  poor  relief  prevails  in  some  forty-nine  1883, 
counties,  the  town  system  in  eighteen  of  the  ^^^ves  the 
most  sparsely  settled  counties.    By  a  happy  ghifrfor 
coincidence,  there  had  been  organized,  a  year  them- 
before  the  passage  of  the  children's  law,  the  selves, 
progressive  children's  aid  society  of  Pennsyl- 
vania, which  at  once  offered  to  assist  the  local 
authorities  in  caring  for  their  children.  In 
many  of  the  counties,  including  the  large 


i6o 


THE  BOARDING-OUT  SYSTEM 


The  chil- 
dren's aid 
society 
helps,  by 
boarding 
out  and 
placing 
out. 


This  co- 
operation 
effective  in 
Philadel- 
phia, 


cities,  this  offer  was  accepted,  and  the  result- 
ing plan  may,  with  exceptions  noted  later,  be 
regarded  as  the  Pennsylvania  system.  The 
children's  aid  society  has  at  no  time  in  its 
history  conducted  an  institution,  but  has  re- 
lied wholly  upon  the  boarding-out  and  plac- 
ing-out  systems,  except  for  feeble-minded  or 
persistently  vicious  children,  or  for  those 
needing  hospital  treatment.  The  cooperation 
with  the  city  and  county  of  Philadelphia  has 
been  its  most  important  work.  The  destitute 
children  who  are  accepted  as  public  charges 
by  an  agent  of  the  charities  department  are 
either  sent  directly  to  the  office  of  the  society, 
or  sent  for  not  more  than  sixty  days  to  the 
children's  asylum  across  the  road  from  the 
almshouse.  They  are  placed  at  board  in 
families,  selected  by  the  society,  and  nearly 
always  in  the  country.  The  city  pays  the 
society  $2  per  week  for  their  care  while 
boarding.  The  society  pays  the  families 
from  to  1^2.50  per  week,  besides  pro- 

viding for  clothing,  medical  attendance,  and 
other  expenses.  While  boarding,  the  chil- 
dren are  visited  by  an  agent  of  the  city 
department  and  by  the  society's  agents,  both 
of  which  endeavor  to  find  free  homes  for 
such  of  the  children  as  are  not  to  be  re- 
turned to  their  parents.     Catholic  children 


PENNSYLVANIA 


i6i 


are,  however,  generally  sent  to  catholic  insti- 
tutions, the  city  agent  retaining  control  of 
them  and  returning  them  to  parents  or  rela- 
tives, or  placing  them  in  free  homes,  as  cir- 
cumstances warrant.  Under  this  plan  the 
number  of  children  supported  by  the  city  has 
remained  very  small,  in  fact  is  very  little 
in  excess  of  the  number  of  children  in  the 
almshouse  seventy-five  years  ago.  On  May  22, 
1826,  there  were  145  children  in  the  children's 
asylum  at  the  almshouse;  on  December  31, 
1900,  the  city  was  supporting  seventy-five 
children  in  private  families,  ninety-five  in 
private  institutions,  and  twenty-eight  in  the 
children's  nursery,  practically  a  department 
of  the  almshouse,  though  not  in  the  same 
buildings.  The  cost  to  the  city  is  propor-  and  the 
tionately  slierht,  and  the  children  in  free  or  ^p^^  * 

1        1.       1  1     1      11  11      city  ver) 

boardmg  homes  are  undoubtedly  under  the  slight, 
most  favorable  circumstances  for  their  devel- 
opment. That  the  system  thus  outlined  has 
been  most  humane  and  beneficent  in  its  effect 
upon  the  children  under  its  care  is  undoubted. 
That  it  has  reduced  the  public  expenditure  to 
a  minimum  is  also  true.  The  element  of  weak- 
ness in  the  plan,  regarded  as  a  system  for  the 
state,  is  that  it  is  dependent  upon  voluntary 
cooperation  between  the  local  ofl&cials  in  sixty- 
three  counties  and  a  private  society,  —  or 

M 


1 62  THE  BOARDING-OUT  SYSTEM 


The  sys- 
tem lacks, 
however, 
the  ele- 
ments of 
authority 
and  per- 
manency. 


rather  several  societies,  since  the  original 
society  has  divided  into  several  branches,  the 
parent  society  remaining  by  far  the  largest 
and  most  active.  Five  separate  branches 
secured  state  appropriations  in  1899.  This 
renders  it  impossible  to  secure  a  uniformly  effi- 
cient system  in  all  parts  of  the  state.  Two 
counties  built  children's  homes  under  the  con- 
trol of  their  poor  authorities,  two  others  board 
out  their  children  under  their  own  care,  while 
eleven  counties  place  their  children  in  insti- 
tutions with  per  capita  payment  for  their  care 
until  free  homes  are  found.  Even  Philadel- 
phia places  its  catholic  children  in  institutions, 
and  since  1895  has  placed  a  considerable  pro- 
portion of  its  protestant  children  in  a  private 
children's  home  instead  of  in  families  under 
the  care  of  the  children's  aid  society.  Ad- 
mirable as  the  cooperation  between  the  chil- 
dren's aid  society  and  certain  of  the  counties 
has  been,  it  does  not  cover  the  state  as  a  whole, 
and,  it  is  to  be  feared,  lacks  the  elements  of 
authority  and  permanency.^ 

In  New  Jersey  until  1899  destitute  children 
were  city  and  town  charges,  and  were  pro- 
vided for  either  by  being  kept  in  the  alms- 
houses, as  they  were  to  the  number  of  about 

1  The  work  of  the  children's  aid  society  for  other  than 
Public  charges  will  be  alluded  to  later. 


NEW  JERSEY  163 

500,  or  being  placed  in  families  by  indenture, 

or  by  being  placed  in  private  institutions  at  a 

per  capita  rate,  the  latter  plan,  however,  not 

being  used  extensively.     In  1895  the  gov-  A  board  of 

ernor  appointed  a  commission  to  investigate  children's 

.     .  guardians 

the  subject.     This  commission  reported  to 

the  legislature  of  1897  a  bill  for  the  creation  h^hed  in 

of  a  state  board  of  children's  2:uardians.   The  ^^^^ 

°  sey  in 

bill  failed  of  passage  in  1897,  but  became  a  1899. 
law  in  March,  1899.  Under  this  act  the 
governor  appoints  a  board  of  seven  persons, 
to  whose  custody  all  children  becoming  pub- 
lic charges  are  to  be  committed.  The  chil- 
dren are  to  be  placed  in  families  at  board 
until  free  homes  can  be  found.  Their  board 
is,  however,  to  be  paid  by  the  counties  from 
which  they  come. 

When  the  law  was  enacted  there  were  403 
children  in  the  almshouses  in  the  state,  255 
of  whom  were  in  the  Hudson  county  (Jersey  j^iost  of 
City)  almshouse.     The  freeholders  of  this  the  chil- 
county  opposed  the  operations  of  most  fea- 
tures  of  the  act  for  two  years.   By  November  houses  re- 
I,  1900,  the  board  of  guardians  had  secured  turned  to 
the  removal  of  all  children,  except  a  very  few 
defectives,  from  all  the  other  almshouses  of 
the  state,  having  been  instrumental  in  secur- 
ing the  return  of  309  children  (104  from 
Hudson  county)  to  parents  or  relatives,  and 


relatives; 


THE  BOARDING-OUT  SYSTEM 


in  placing  1 1 1  children  in  families,  with  pay- 
ment for  board  in  some  cases.  In  May,  1901, 
the  freeholders  of  Hudson  county  discontin- 
ued their  opposition,  and  the  board  of  guar- 
dians removed  the  160  children  then  in  the 
almshouse,  with  the  exception  of  eighteen 
the  bal-  defectives.  There  are  now  no  children  ex- 
,       cept  defectives  or  very  recent  admissions  in 

placed  or 

boarded  the  almshouscs  of  New  Jersey;  there  are 
out.  under  the  supervision  of  the  board  of  chil- 
dren's guardians  ninety-six  children  in  free 
homes  in  families  and  164  children  boarded 
in  families  and  thirty-four  boarded  temporarily 
in  institutions.  The  number  of  children  be- 
coming public  charges  has  been  greatly 
reduced  during  the  past  three  years. 

The  states  of  Illinois  and  Missouri,  not- 
withstanding their  large  cities,  have  been 
singularly  backward  in  making  any  public 
provision  for  destitute  and  neglected  chil- 
illinoishas  dren.    Neither  state  forbids  the  retention  of 
no  specific  children  in  almshouses.    In  Illinois  the  poor, 

system  for    .     ,    ..         ,     i  i  , 

the  care  of  mcludmg  children,  are  a  county  charge,  and 
dependent  children  are  kept  in  almshouses,  placed  di- 
children.  j-^ctiy  families,  placed  in  the  care  of  plac- 
ing-out  societies  with  a  per  capita  allowance 
—  usually  $50  —  for  expenses  of  placing  out, 
or,  especially  in  Cook  county  (Chicago),  placed 
in  private  institutions,  where  they  are  paid  for 


STATES  WITHOUT  SYSTEMS  1 65 


by  a  per  capita  rate.   The  number  of  children 
so  supported  is  not  large,  owing,  perhaps,  to 
constitutional  limitation  of  such  appropria- 
tions.   An  unsuccessful  effort  was  made  in 
1888  to  secure  the  establishment  of  a  state  pub- 
lic school  for  dependent  children.    In  1899  The  chil- 
a  law  framed  by  the  Illinois  children's  home  ^j;^^^^ 
and  aid  society  was  enacted,  covering  the  ^^^^ 
general  subject  of  the  commitment  and  care 
of  destitute,  neglected,  and  delinquent  chil- 
dren.   The  law  defines  these  classes  of  chil-  defines  and 
dren,  specifies  the  courts  which  shall  deal  F^vides 

.  ,     1  .  .  .     ^,  .    f^or  the 

With  them,  requirmg  a  separate  court  m  Chi-  commit- 
cago,  regulates  the  procedure,  and  provides  ment  of 
for  commitment  to  a  suitable  state  institution,  ^^^^^^^^^ 

'   and  neg- 

a  reputable  citizen,  an  industrial  school,  or  an  lected 
association  for  the  care  or  placing  out  of  children, 
children,  or  for  placing  the  child  on  proba- 
tion.   "Associations'*  for  the  placing  out  of 
children  are  given  legal  recognition  and  au- 
thority to  act  as  guardians  of  children ;  the 
approval  of  the  state  board  of  charities  is 
required  for  their  incorporation,  and  they  are 
to  be  subject  to  visitation  by  that  board,  and 
are  to  make  annual  reports  thereto.    While  butpro- 
the  law  has  many  admirable  features,  it  stops  ^^1^,^ 

^     pubhc  sys- 

short  of  providing  any  public  system  for  the  tem  for 
care  of  the  destitute  and  neglected  children  their  care 
whose  status  it  defines  and  for  whose  com- 


1 66         THE  BOARDING-OUT  SYSTEM 


mitment  it  provides.  It  might  easily  lead  to 
an  extension  of  the  contract  system  as  it  exists 
in  New  York.  It  creates  a  decentralized 
system  of  cooperation  with  private  institu- 
tions and  societies,  the  results  of  which  will 
depend  largely  upon  the  merit  and  efficiency 
of  such  societies. 

Conditions  are  much  the  same  in  Missouri 
as  in  Illinois,  except  that  many  destitute  chil- 
dren are  sent  to  the  reform  school  maintained 
by  the  city  of  St.  Louis. 

Laws  similar  to  the  Illinois  law  were  enacted 
Illinois  law  in  the  state  of  Washington  in  1900  and  in 
copied.      Kansas  and  Pennsylvania  in  1901. 

In  the  states  not  already  mentioned  in  this 
and  preceding  chapters  there  are  no  public 
Other       systems  of  caring  for  destitute  children  ex- 
states,       ^^p|.  outdoor  relief,  almshouses,  and  occa- 

having  no      .       i     ,     .  .     ^      .,.        .  ,  , 

public  sional  placmg  out  m  famines  either  directly 
systems.  or  through  a  placing-out  society.  This  list 
includes  the  following  states :  Alabama,  Ar- 
kansas, Florida,  Georgia,  Idaho,  Iowa,  Ken- 
tucky, Louisiana,  Mississippi,  North  CaroHna, 
South  Carolina,  South  Dakota,  Tennessee, 
Utah,  Vermont,  Virginia,  West  Virginia,  and 
Wyoming. 


CHAPTER  IX 


LAWS  AND  SOCIETIES   FOR  THE   RESCUE  OF 
NEGLECTED  CHILDREN 

Historical  sources  and  discussion :  "  What  should  be  the 
relation  between  a  society  for  the  prevention  of  cruelty  and 
child-caring  agencies,"  read  before  the  international  humane 
congress,  1893,  reprinted  in  Altruistic  Interchange,  January, 
1897.  Reports  of  societies  for  the  prevention  of  cruelty  to 
children:  New  York,  1875-  '>  Philadelphia,  1877-  ;  Bos- 
ton, 1878-  ;  Illinois  humane  society,  1877-  .  For  court 
decisions  in  litigation  between  the  New  York  society  for 
the  prevention  of  cruelty  to  children  and  the  state  board 
of  charities  see  the  Quarterly  Record,  June,  1900  (State 
board  of  charities,  Albany).  See  also  reports  of  board  of 
children's  guardians,  Marion  county,  Indiana,  1889-  . 
"  The  board  of  children's  guardians,"  C.  B.  Martindale,  in 
proceedings  of  first  Indiana  state  conference  of  charities  and 
correction,  189 1.  "  Baby-farming,"  F.  A.  Burt,  report  to  the 
conference  of  child-helping  societies,  Boston,  November  28, 
1892,  published  in  Lend-a-Hand,  January,  1893. 


The  statutes  in  force  prior  to  the  opening 
of  the  nineteenth  century  indicate  that  chil- 
dren rarely  became  the  subjects  of  public  care  Begin- 
except  because  of  the  poverty  of  their  parents,  nings  of 
or  their  own  wrongdoing.    The  statutes  of  , 

c>        o  neglected 

Massachusetts  did,  indeed,  in  a  special  poor  children, 
law,  passed  in  1735  for  the  city  of  Boston, 
167 


1 68  NEGLECTED  CHILDREN 


The  duty 
of  the 
public  to 
intervene 
in  cases  of 
cruelty  or 
neglect 
recognized 
after  1825. 


because  that  town  had  grown  considerably 
populous  and  the  idle  and  poor  much  in- 
creased among  them,"  provide  that  when 
persons  **were  unable,  or  neglected  to  pro- 
vide necessaries  for  the  sustenance  and  sup- 
port of  their  children,"  such  children  might 
be  bound  out  by  the  overseers,  and  that 
"where  persons  bring  up  their  children  in 
such  gross  ignorance  that  they  do  not  know, 
or  are  not  able  to  distinguish,  the  alphabet, 
or  twenty-four  letters,  at  the  age  of  six  years," 
the  overseers  might  bind  out  such  children  to 
good  families  "  for  a  decent  and  christian  edu- 
cation." We  have  no  knowledge  as  to  how 
many  children  were  actually  bound  out  under 
this  remarkable  statute,  i  Numerous  instances 
are  found  in  the  statutes  ot  various  states  from 
1790  to  1825,  authorizing  the  binding  out,  or 
commitment  to  almshouses,  of  children  found 
begging  on  the  streets,  or  whose  parents  were 
beggars.  A  general  statute  to  this  effect  was 
passed  in  New  York  in  1824.  From  about 
1825  there  came  a  more  and  more  general 
recognition  and  practical  application  of  the 
principle  that  it  is  the  right  and  duty  of  the 
public  authorities  to  intervene  in  cases  of 
parental  cruelty,  or  gross  neglect  seriously 
endangering  the  health,  morals,  or  elementary 
education  of  children,  and  to  remove  the  chil- 


EARLY  LEGISLATION. 


169 


dren  by  force  if  necessary,  and  place  them 
under  surroundings  more  favorable  for  their 
development.  Such  action,  prompted  by 
philanthropic  instincts,  finds  justification  in 
the  fact  that  neglected  childhood  is  a  danger 
to  the  state.  Step  by  step  statutory  authority 
has  been  gained  for  the  rescue  of  neglected 
children ;  the  definition  of  the  term  has  been 
made  more  and  more  precise,  and  at  the  same 
time  more  inclusive ;  agencies  have  been  cre- 
ated for  the  enforcement  of  these  laws ;  and 
institutions  established  for  the  care  of  the 
children;  The  law  amending  the  charter  of  N  ew  York 
New  York  city,  passed  in  1833,  provided  that 
the  mayor,  recorder,  or  any  two  aldermen,  or 
two  special  justices,  might  commit  to  the  alms- 
house, or  other  suitable  place,  for  labor  and 
instruction,  any  child  found  in  a  state  of 
want  or  suffering,  or  abandonment,  or  im- 
properly exposed  or  neglected  by  its  parents 
or  other  person  having  the  same  in  charge,  or 
soliciting  charity  from  door  to  door,  or  whose 
mother  was  a  notoriously  immoral  woman.  It 
has  been  commonly  supposed  that  these 
statutes  were  of  much  later  origin. 

The  Massachusetts  law  of  1866  provided 
that  children  under  sixteen  years  of  age  who,  ^^^^g^^^^ 
by  reason  of  the  neglect,  crime,  drunkenness,  1866, 
or  other  vices  of  parents,  were  suffered  to  be 


170  NEGLECTED  CHILDREN 


New  York 
again  in 
1877, 


notably 

Michigan 

in  1889, 

and  most 

other 

states, 

have 

passed 

special 

laws. 


growing  up  without  salutary  parental  control 
and  education,  or  in  circumstances  exposing 
them  to  lead  idle  and  dissolute  lives,  might 
be  committed  by  the  proper  court  to  the  place 
designated  for  such  purpose  by  the  city.  In 
1882  a  law  was  passed  providing  for  the  com- 
mitment of  neglected  children,  between  three 
and  sixteen  years  of  age,  directly  to  the  cus- 
tody of  the  state  board  of  charity. 

In  1877  New  York,  at  the  suggestion  of 
the  society  for  the  prevention  of  cruelty  to 
children,  passed  a  law  entitled  an  act  for  the 
protection  of  children  and  to  prevent  and 
punish  certain  wrongs  of  children,  which  was 
in  part  adapted  from  the  industrial  school  act 
of  England.  Subsequently,  these  provisions 
were  embodied  in  the  penal  code,  and  have 
from  time  to  time  been  extended. 

Statutes  of  somewhat  similar  character 
have  been  enacted  in  nearly  all  the  states  of 
the  union.  One  of  the  best  is  that  of  Michi- 
gan, passed  in  1889.  The  sections  describ- 
ing the  classes  of  children  who  may  be 
committed,  because  of  ill-treatment,  to  the 
state  public  school  are  drawn  with  great  de- 
tail, and  are  among  the  most  comprehensive 
that  have  found  place  in  the  statute  books. 
In  Michigan  such  cases  are  tried  before  the 
judges  of  probate. 


J 


COMMITMENT 


171 


The  care  of  neglected  as  well  as  destitute 
children  has  been  a  motive  in  the  founding  of 
many  of  the  private  and  public  child-saving 
agencies  from  the  early  part  of  the  century. 
The  juvenile  reformatories,  though  estab- 
lished primarily  for  actual  offenders  and  to 
prevent  the  commitment  of  such  to  prisons  Neglected 
with  adults,  received  also  neglected  and  desti-  children 

,     ,  -   -    .      .  .  committed 

tute  children,  and  their  charters  m  many  cases  toreforma- 
authorized  the  commitment  of  such  children  tories  and 
to  them.    The  fifth  annual  report  of  the  New  P^^P^' 

institu- 

York  house  of  refuge,  1830,  says:  ''The  ^ions. 
legislature  has  very  much  enlarged  the  ob- 
jects of  our  institution.  ...  If  a  child  be 
found  destitute ;  if  abandoned  by  its  parents, 
or  suffered  to  lead  a  vicious  or  vagrant  life ; 
or  if  convicted  of  any  crime,  it  may  be  sent 
to  the  house  of  refuge."  We  have  already 
noted  that  early  in  the  seventies  neglected 
children  were  being  committed  to  the  pauper 
institutions  of  Boston.  Separate  statistics  of 
the  pauper  and  neglected  children  have  been 
kept  by  Boston  from  that  time  to  the  present. 
The  state  schools  for  dependent  children, 
though  originally  established  for  destitute 
children,  have  at  later  dates  been  authorized 
to  receive  neglected  children.  In  New  York 
the  penal  code  enacted  in  1880  authorized  the 
commitment  of  various  classes  of  neglected 


172  NEGLECTED  CHILDREN 


Societies 
for  the  pre- 
vention of 
cruelty  to 
children, 
originat- 
ing in  New 
York  in 
1875. 


children  to  **any  incorporated  charitable  or 
reformatory  institution.'' 

The  enforcement  of  laws  for  the  rescue  of 
neglected  children,  as  well  as  the  enactment 
of  further  legislation,  received  a  great  im- 
petus from  the  organization  of  societies  for 
the  prevention  of  cruelty  to  children,  the  first 
of  which  was  established  in  New  York  city  in 
1875.  Curiously  enough,  societies  for  the 
prevention  of  cruelty  to  animals  were  in  exist- 
ence for  eight  years  before  similar  societies 
for  the  protection  of  children  were  organized. 
The  American  society  for  the  prevention  of 
cruelty  to  animals  was  organized  in  New  York 
city  in  1866,  similar  societies  followed  in 
Massachusetts  and  Pennsylvania  in  1868,  in 
Maryland  and  Illinois  in  1869,  and  in  many 
other  cities  in  1 87 1 .  The  New  York  society  for 
the  prevention  of  cruelty  to  children  was  or- 
ganized in  January,  1875,  and  incorporated  in 
April,  1875,  under  a  general  law  passed  that 
year  for  the  incorporation  of  such  societies. 
Other  societies  followed  in  the  order  named  : 


1875,  Rochester. 

1876,  Portsmouth. 

1876,  San  Francisco. 

1877,  Philadelphia. 

1878,  Boston. 


1878,  Baltimore. 

1879,  Buffalo. 

1879,  Wilmington,  Del. 

1880,  Brooklyn. 

1880,  Richm.ond  county,  N.Y. 


"CRUELTY"  SOCIETIES  1 73 


In  some  cities,  societies,  originally  incor- 
porated for  the  protection  of  animals,  added 
to  their  objects  the  protection  of  children.  In 
others,  new  societies,  often  called  humane  Humane 
societies,  were  organized  for  both  purposes,  societies, 
The  total  number  of  societies  in  the  United  both^chil^ 
States  in  1900,  devoted  exclusively  to  the  drenand 
protection  of  children,  or  to  the  protection  of  ^^1"^^^^- 
both  children  and  animals,  is  161.^    In  1877 
the  societies  for  the  protection  of  animals 
organized  the  American  humane  association, 
which  holds  an  annual  convention  for  the 
discussion  of  topics  relating  to  the  prevention 
of  cruelty.    Societies  for  the  protection  of 
children  were  admitted  to  this  association  in 
1887. 

The  primary  work  of  these  societies  has 
been  that  of  investigating  cases  of  alleged 
cruelty  or  neglect,  and  the  presentation  of 
the  facts  to  the  courts  authorized  to  consider 
such  cases.  In  New  York,  but  not  else- 
where, so  far  as  known,  unless  in  exceptional 
cases,  the  society  for  the  prevention  of  cruelty 
to  children  has,  in  its  cooperation  with  the 
courts,  included  also  the  investigation  of 
cases  of  destitution. 

The  New  York  society  has  had  an  excep- 

1  See  list  in  report  of  New  York  society  for  the  preven- 
tion of  cruelty  to  children,  1900. 


174  NEGLECTED  CHILDREN 

tional  history.  Its  first  annual  report  stated 
that  there  were  already  in  existence  many 
institutions  and  societies  for  the  care  of  chil- 
dren, but  that  it  was  not  their  business  to 
seek  out  and  to  rescue  children  whose  lives 
were  rendered  miserable  by  constant  abuse 
and  cruelty.  The  laws  for  the  prevention  of 
cruelty  to  children  were  considered  ample, 
but  it  was  nobody's  business  to  enforce  the 
laws.  To  this  task  the  new  society  addressed 
The  New  itself.  In  addition  to  seeking  to  discover 
York  so-    cases  of  cruelty  and  neglect,  it  stationed 

cietvinveS" 

tigated  all  ^^g^^ts  in  all  the  magistrates'  courts,  to  inves- 
court  cases  tigate  all  cases  involving  children,  whether 
chlwren^  for  destitution,  neglect,  cruelty,  or  wayward- 
and  ad- '  ness.  Through  these  agents  it  has  advised 
vised  the  the  magistrates,  not  only  as  to  whether  com- 
"^^5^^"       mitment  should  be  made,  but  as  to  what  in- 

trates  as  ' 

to  the       stitutions  the  children  should  be  committed 
commit-     to.    Subsequently,  the  children  were  placed 
the  chil-     under  the  care  of  the  society  pending  investi- 
dren.        gation,  and  the  agents  of  the  society  were 
given  the  powers  of  police  officers.  Though 
the  power  to  discharge  the  children  was 
vested  in  the  managers  of  the  institutions, 
they,  often  regarding  the  society  as  the  real 
authority  through  which  the  children  had 
been  sent  to  them,  usually  did  not  discharge 
the  children  either  to  their  parents  or  by 


THE  NEW  YORK  SOCIETY  175 

adoption  or  indenture,  without  consulting  the 

society,  and  in  some  cases  took  no  action  in  ultimately 

reference  to  discharge  until  so  requested  by  ^^^^ 

the  society.    This  society  thus  became,  by  entirTdis- 

1890,  the  factor  which  actually  controlled  the  position  of 

reception,  care,  and  disposition  of  destitute,  classes 

1         1  1  1      1  .1  1  .      ii.T        of  children 

neglected,  and  wayward   children  m  New  coming 
York  city,  thus  practically  controlling  the  before  the 
lives  of  an  average  number  of  about  fifteen 
thousand  children,  and  an  average  annual 
expenditure  for  their  support  of  more  than 
one  and  one  half  million  dollars.    Its  influ-  its  influ- 
ence has  done  more  to  strengthen  and  per- 

,  1    .  ,  .  which 

petuate  the  subsidy  or  contract  system,  as  it  tended  to 
existed  prior  to  1 894,  than  any  other  one  factor,  perpetuate 
Since  additional  powers  have  been  conferred  ^hesubsidy 

1         1      .  .  .    .  ,1      system,  re- 

upon  the   chanties   commissioners  by  the  stricted 
state  board  of  charities,  acting  under  the  since  1894. 
revised  constitution,  the  activities  of  the  soci- 
ety, so  far  as  destitute  children  are  concerned, 
have  been  somewhat  restricted. 

These  societies  have,  in  a  number  of  large 
cities,  provided  temporary  shelters  for  chil- 
dren coming  under  their  care.    As  a  rule  the  Tempo- 
societies  have  been  at  first  supported  wholly  ^^^^^ 
by  private  funds,  but  latterly  the  societies  in  provided. 
New  York,  Philadelphia,  Wilmington,  Brook- 
lyn, and  probably  other  cities,  have  received 
some  aid  from  public  sources. 


1/6  NEGLECTED  CHILDREN 


The  influence  of  the  "  cruelty  societies  as 
a  whole  has  been  in  favor  of  the  care  of 
children  in  institutions,  rather  than  by  plac- 
ing them  in  families.  So  far  as  known,  none 
of  the  societies  have  undertaken  the  con- 
Placing  tinned  care  of  the  children  rescued  by  them, 
employed  h3,Ye  turned  them  over  to  the  care  of 

by  these  institutions  or  societies  incorporated  for  the 
societies  ^^^.^  children.  By  a  vigorous  enforcement 
sively.  the  laws  authorizing  the  commitment  of 

vagrant,  begging,  and  various  other  classes 
of  exposed  children,  they  have  very  largely 
increased  the  numbers  of  children  becoming 
wards  of  public  or  private  charity.  Usually 
they  have  not  cooperated  to  any  extent  with 
placing-out  societies,  perhaps  because  of 
being  continually  engaged  in  breaking  up 
families  of  bad  character,  but  have  rather 
become  the  feeders  of  institutions,  both 
reformatory  and  charitable.  The  New  York 
society  during  1900  placed  six  children  in 
homes  or  situations ;  during  the  same  period 
2407  children  were,  upon  its  recommenda- 
tion, committed  to  institutions.  Constantly 
occupied  with  questions  involving  the  cus- 
tody of  children,  they  have,  not  unnaturally, 
preferred  to  place  the  children  rescued  by 
them  within  the  walls  of  institutions,  where 
possession  is  at  least  nine  points  of  the  law, 


BOARDS  OF  CHILDREN'S  GUARDIANS    1 77 


rather  than  to  trust  to  a  measure  of  uncer- 
tainty necessarily  involved  in  the  placing-out 
system.    Without  detracting  from  the  great  Their  in- 
credit  due  to  such  societies  for  the  rescue  of  A^^^ce 

best  3.S  Si 

children  from  cruel  parents  or  immoral  sur-  ^^^^^ 
roundings,  it  must  be  said  that  their  influence  straint  on 
in  the  upbuilding  of  very  large  institutions,  P^^^"^^ 

/  ,  who  would 

and  their  very  general  failure  to  urge  the  be  cruel  if 
benefits  of  adoption  for  young  children,  have  they  dared, 
been  unfortunate.  Probably  their  greatest 
beneficence  has  been,  not  to  the  children  who 
have  come  under  their  care,  but  to  the  vastly 
larger  number  whose  parents  have  restrained 
angry  tempers  and  vicious  impulses  through 
fear  of  "the  Cruelty.^' 

As  indicated  by  their  name,  the  societies 
for  the  prevention  of  cruelty  to  children  are 
private  corporations ;  their  boards  of  man- 
agers are  independent  of  official  appoint-  Local 
ment.    In  only  one  state  have  governmental  ^^^^^^  ®/ 

,  ,  ,  r  T       1     •  children's 

bodies  been  created  to  perform  the  duties  guardians 

elsewhere  assumed  by  these  societies.     In  in  Indiana, 

the  state  of  Indiana,  a  law  of  1889  author-  to  protect 

ized  the  appointment  of  boards  of  children's  neglect 

guardians  in  townships  (changed  in  1891  to  and 

counties)  having  a  population  more  than  ^^^^^^y- 
seventy-five  thousand.    In  1893  the  law  was 
made  applicable  to  counties  having  more  than 
fifty  thousand  population,  of  which  there  are 


1/8  NEGLECTED  CHILDREN 


four  in  the  state,  in  all  of  which  such  boards 
have  been  organized.  Each  board  is  com- 
posed of  six  persons,  three  of  whom  must  be 
women ;  the  members  are  appointed  by  the 
circuit  court.  The  boards  not  only  investi- 
gate cases  of  alleged  cruelty  and  neglect,  and 
bring  such  to  trial,  but  also  undertake  the 
subsequent  oversight  of  the  children,  placing 
them  in  temporary  homes,  managed  directly 
by  the  boards,  or  in  institutions  managed  by 
others,  or  in  families.  A  bill  introduced  in 
1899  to  make  possible  the  appointment  of 
such  boards  in  counties  having  less  than  fifty 
thousand  population  failed  of  passage,  but  in 
1 90 1  a  new  but  similar  law,  applicable  to  all 
counties,  was  passed. 

The  Colorado  humane  society  was  made  by 
the  legislature  of  1901  **a  state  bureau  of 
Colorado  child  and  animal  protection  and  was  given 
humane  appropriation  of  ;^3000  per  annum  for  two 
years.  It  remains  under  private  control,  but 
three  state  officers  are  made  ex  officio  mem- 
bers of  its  board  of  directors. 


CHAPTER  X 


PRIVATE    CHARITIES     FOR    DESTITUTE  AND 
NEGLECTED  CHILDREN,  1875-I9OO 

Historical  sources  and  discussion:  Reports  of  New 
York  children's  aid  society,  1875-  •  "  Country  homes  for 
dependent  children,"  C.  L.  Brace  (New  York,  1898).  Re- 
ports of  Boston  children's  aid  society,  1875-  ,  and  of 
boys  and  girls'  aid  society,  Portland,  Ore.,  1885-  • 
Reports  of  McDonough  farm  school  (near  Baltimore); 
Samuel  Ready  asylum,  Baltimore  ;  Cincinnati  children's 
home;  Cleveland  orphan  asylum;  and  Rose  orphan  home, 
Terre  Haute.  Concerning  the  George  junior  republic,  see 
Outlook,  May  31,  1896  ;  American  Journal  of  Sociology^ 
November,  1897,  January,  1898  ;  Journal  of  Education, 
January  4,  11,  and  18,  1900;  Puritan,  February,  1901  ; 
annual  reports  ;  and  the  Junior  Republic  Citizen,  published 
monthly.  For  discussion  of  comparative  advantages  of  insti- 
tutions and  placing-out  methods  see  :  "Thoughts  in  an 
orphan  asylum,"  Rabbi  S.  Schindler,  Arena,  November, 

1893  ;  "Advantages  of  institutions  in  the  education  of 
destitute  children,"  Mary  M.  Cox,  Philadelphia,  1887  ;  "The 
responsibility  of  states  to  their  dependent  children,"  Mrs. 
M.  E.  Cobb  (J.  H.  FrankUn  &  Co.,  Fall  River,  1888)  ; 
"The  shady  side  of  the  placing-out  system,"  L.  P.  Alden, 
proceedings  national  conference,  1885  ;  "  Some  develop- 
ments of  the  boarding-out  system,"  The  Charities  Review, 
March,  1893  5  "Care  of  dependent  children,"  address,  pub- 
lished in  report  of  the  Baltimore  charity  organization  society, 

1894  ;  "  Why  should  dependent  children  be  reared  in  fami- 
lies rather  than  in  institutions  ?  "  in  proceedings  convention 
of  superintendents  of  the  poor  of  New  York,  1895.  Informa- 

179 


l80       PRIVATE  CHARITIES  SINCE  1875 


Private 

charities 
adapt 
them- 
selves to 
varying 
public 
policies  in 
the  care  of 
children. 


tion  in  regard  to  individual  institutions  may  be  found  in  the 
directories  of  charities  published  in  New  York,  Chicago, 
Boston,  Philadelphia,  Baltimore,  Buffalo,  and  San  Francisco. 
See  also  "Annual  reports  of  child-caring  organizations," 
Lend-a-Hand^  October,   1893,  "  State  supervision  of 

child-caring  agencies,"  proceedings  national  conference, 
1895.  Agency  for  providing  situations  for  destitute  mothers 
with  infants,  annual  reports,  1894-  (State  charities  aid  asso- 
ciation, New  York). 

The  development  of  private  charities  dur- 
ing the  last  quarter  of  the  century  has  been 
variously  affected  in  different  states  by  the 
policies  adopted  by  the  public  authorities  for 
the  care  of  children  who  are  public  charges. 
Where  public  institutions,  especially  state 
institutions,  have  been  established  for  the 
care  of  children  permanently  separated  from 
their  parents,  the  private  charities  have  grad- 
ually turned  their  attention  to  the  temporary 
care  of  children,  or  to  the  care  of  some 
special  class  of  children  not  fully  provided 
for  by  the  pubhc,  or  to  the  development  of 
special  lines  of  instruction,  emphasizing  their 
educational  rather  than  their  charitable  fea- 
tures. Where  the  subsidy  plan  has  been 
adopted,  the  institutions  wholly  supported  by 
private  funds  have  usually  ceased  to  be  an 
important  factor  in  the  situation,  and  the 
subsidized  institutions  have  increased  in 
numbers  and  size,  without  much  specializa- 
tion in  purpose.    The  plan  tends  to  increase 


DIFFERENTIATION 


the  number  of  institutions  receiving  about 
the  same  classes  of  children  and  caring  for 
them  by  the  same  methods.  A  tendency  to 
differentiation  and  specialization  of  private 
charities  is  undoubtedly  better  for  the  chil- 
dren and  for  the  community. 

During  the  early  part  of  the  last  quarter  of 
the  century,  children's  institutions  multiplied 
rapidly  in  all  parts  of  the  country.  Forty 
were  incorporated  in  New  York  alone  in  the 
fifteen  years,  1875-1890.  Since  1883  the  con- 
sent of  the  state  board  of  charities  has  been  They  have 
necessary  for  the  incorporation  of  such  insti-  increased 
tutions,  and  several  needless  and  unworthy  sfnce\^875, 
applications  have  been  denied.  In  Philadel-  until  the 
phia,  only  nine  new  institutions  were  incor- 
porated in  the  interval  1875  to  1893,  the 
last  date  for  which  the  figures  are  available. 
Four  of  the  nine  were  under  the  charge  of 
various  protestant  denominations.  In  Bos- 
ton, some  eleven  institutions,  none  of  them 
large,  and  all  of  them  entirely  supported  by 
private  funds,  have  been  organized  since 
1875.  Several  of  these  have  recently  em- 
ployed placing-out  agents,  or  have  established 
codperation  with  the  Boston  children's  aid 
society.  The  Massachusetts  infant  asylum, 
which  at  first  received  state  aid,  has  for  many 
years  been  supported  wholly  by  private  funds. 


last 
decade. 


1 82        PRIVATE  CHARITIES  SINCE  1875 


The  later 
decrease 
due  to  the 
growth  of 
placing- 
out  agen- 
cies. 


The  Bos- 
ton chil- 
dren's aid 
society 


Although  exact  statistics  are  not  available, 
it  seems  certain  that  there  has  been  a  marked 
diminution  in  the  number  of  new  institutions 
organized  during  the  last  decade. 

This  seems  to  be  due  largely  to  the  influ- 
ence of  the  agencies  which  have  favored  the 
placing-out  system,  and  to  the  remarkable 
success  which  has  attended  that  system  in 
many  states.  The  New  York  children's  aid 
society  has  continued  its  placing-out  work  to 
the  present,  though  its  cooperation  with  pub- 
lic authorities  very  greatly  decreased  after 
about  1875,  the  principal  reason  being  that, 
inasmuch  as  the  society  declined  to  take 
into  account  the  religious  faith  of  the  chil- 
dren in  selecting  homes,  it  met  with  violent 
opposition  from  many  sources.  The  chil- 
dren placed  out  by  it  in  recent  years  have 
been  received  largely  through  its  lodging 
houses,  or  from  protestant  institutions,  or 
from  parents. 

One  of  the  most  influential  of  the  placing- 
out  societies  has  been  the  Boston  children's 
aid  society.  The  principal  work  of  this 
society  from  1863  to  1885  was  the  mainten- 
ance of  an  excellent  farm  school  for  wayward 
boys,  known  as  Pine  farm,  with  an  oversight 
of  the  boys  placed  in  families  or  returned 
to  their  parents   from  this   school.  The 


PLACING  OUT 


183 


report  for  1884  notes  the  need  of  an  addi- 
tional farm  school,  and  also  of  sending  some  passes 
children  directly  to  country  homes.    In  1886  ^i^ommam- 
a  country  home  in  which  a  few  boys  had  been  farm 
boarded  was  developed  into  a  second  farm  schools  to 
school,  and  a  third  was  established  soon  after, 

'  placing 

The  girls  under  the  care  of  the  society  were  out. 
sent  directly  to  families.    The  number  of 
destitute  and  neglected  children  not  requir- 
ing even  the  training  of  the  farm  school,  but 
who  could  be  placed  directly  in  private  fami- 
lies, rapidly  increased.    Some  of  these  chil- 
dren  were   placed  in   free   homes,  many 
received  wages,  and  others  were  boarded  in 
families.    This  society  was  among  the  first  to 
develop  a  careful,  systematic,  and  satisfac- 
tory plan  for  the  investigation  of  the  charac- 
ter and  circumstances  of  families  applying  The  socie- 
for  children,  and  for  the  supervision  of  chil-  ^y'^  system 
dren  placed  in  families,  and  has  exerted  a  g^tion  and 
powerful  influence  in  raising  the  standards  visitation 

of  placinsf-out  w^ork,  not  only  in  Massachu-  ^^^^^ 
1         1       .        1  ^     ^      -,  worthy. 

setts,  but  also  m  other  states.  On  October 
I,  1 89 1,  255  children  were  under  the  care  of 
this  society  in  families,  sixty  in  the  three 
farm  schools,  168  in  their  own  homes,  and 
twenty-seven  in  institutions.  In  1892  one  of 
the  three  farm  schools  was  discontinued,  one 
third  of  its  pupils  being  sent  to  the  other 


1 84       PRIVATE  CHARITIES  SINCE  1875 


farm  schools,  and  the  remainder,  with  one 
exception,  placed  in  families.  In  1896  a 
second,  and  in  1899  the  third  and  last  farm 
school  was  closed,  because  the  improved 
provision  by  the  state  and  city,  coincidently 
with  the  development  of  the  society^s  other 
methods,  made  them  unnecessary.  The  num- 
ber of  children  under  the  care  of  the  placing- 
out  agency  December  31,  1900,  was  281,  of 
whom  146  were  in  boarding  homes,  eighty- 
seven  in  free  homes,  thirty-four  were  receiv- 
ing wages,  and  fourteen  were  otherwise 
placed.  The  important  work  done  by  this 
society  in  promoting  needed  legislation,  and 
through  its  bureau  of  information,  its  pro- 
bation agency,  home  libraries,  and  other 
agencies  for  improving  the  condition  of  chil- 
dren in  their  own  homes  does  not  fall  within 
the  scope  of  this  volume. 

The  cooperation  of  the  children's  aid 
society  of  Pennsylvania  with  public  author- 
ities has  already  been  described.  In  addition 
to  this,  it  receives  a  large  number  of  needy  or 
semi-wayward  children  directly  from  parents, 
and  some  from  magistrates,  all  of  whom  are 
extensive^^  supported  by  voluntary  contributions,  from 
which  source  the  funds  for  the  running 
expenses  of  the  society  are  also  met.  This 
society  has  also  worked  out  very  careful  plans 


Private 
work  of 
the  Penn- 
sylvania 
children's 


PLACING  OUT 


185 


for  investigating  applications  for  children,  and 
for  exercising  oversight  over  placed-out  chil- 
dren. The  Henry  Watson  children's  aid  Other  aid 
society  of  Baltimore  also  has  strengthened  its  ^^^^^^^^s. 
placing-out  work,  and  extended  its  coopera- 
tion with  institutions,  during  the  past  three 
years.  A  children's  aid  society  organized  in 
Rochester,  in  1895,  somewhat  on  the  plan  of 
the  Philadelphia  society,  has  done  excellent 
work.  A  similar  agency  has  been  main- 
tained by  the  Newburgh  committee  of  the 
New  York  state  charities  aid  association  since 
1893,  and  this  association  has  maintained  a 
placing-out  agency  at  its  central  office  since 
1898. 

In  1885  a  society  called  the  American 
educational  aid  association,  afterwards  called 
the  national  children's  home  society,  was  or-  The 
ganized,  with  an  office  in  Chicago.   Although  ^^ational 

,     .  .  children's 

placmg  out  was  not  its  origmal  object,  it  j^^j^e  so- 
found  this  a  more  attractive  field,  and  founded  ciety,  a 
a  number  of  state  organizations  for  such  work.  ^^^^^  ^^^Z 

^  eration  of 

The  society  soon  became  a  loose  federation  of  piacing- 
state  organizations  whose  work  differed  greatly  out  organ- 
in  character  and  merit.    Societies  were  organ-  ^^^f 
ized  in  some  states  already  amply  provided  reliable, 
with  placing-out  agencies,  and  the  character 
and  methods  of  the  promoters  of  the  national 
organization  were  not  always  such  as  to  com- 


1 86       PRIVATE  CHARITIES  SINCE  1875 


mend  themselves  to  thoughtful  people.  In 
some  cases  the  state  organizations  passed 
into  the  hands  of  incompetent,  if  not  untrust- 
worthy, people.    In  other  states  much  good 
has  been  accomplished  and   more  careful 
methods  have  been  introduced.    The  Illinois 
branch  has  recently  been  reorganized,  and 
with  the  aid  of  its  efficient  secretary  has  done 
and  will  do  much  to  improve  the  situation  in 
that  state.    The  work  of  the  Minnesota,  Ohio, 
Wisconsin,  and  South  Dakota  branches  has 
Its  influ-     also  been  commended.    The  organization  as 
^h^^i^f^    a  whole  has  done  much  to  popularize  the 
vorabiefor  placing-out  plan,  and  has  created  a  public 
placing      opinion  in  its  favor  which  has  had  a  favor- 
children's    ^^^^  reflex  action  upon  many  public  and  pri- 
legisla-      vate  institutions.    Beginning  in  Illinois  in 
tion.         1899,  it  has  been  active  in  securing  legis- 
lation concerning  children  in  many  states. 

The  boys  and  girls'  aid  society  of  California 
was  organized  in  San  Francisco  in  1874  to 
undertake  the  work  carried  on  so  successfully 
by  the  New  York  children's  aid  society.  It 
has,  however,  devoted  most  of  its  energies  to 
the  maintenance  of  a  temporary  home  for 
children. 

In  1885  a  boys  and  girls'  aid  society  was 
organized  in  Portland,  Oregon.  This  society 
has  a  temporary  home  for  the  reception  of  des- 


RESTRICTIONS  ON  PLACING  OUT       1 8/ 


titute  and  neglected  children,  from  which  they 
are  placed  out  as  soon  as  possible.  During 
1900,  380  children  were  received,  and  the 
average  period  of  residence  in  the  home  was 
about  one  month. 

In  1898  the  Rhode  Island  nursery  associ- 
ation, organized  in  1890  to  care  for  destitute 
infants,  closed  its  institution  and  adopted  the 
boarding-out  system.  After  three  years'  ex- 
perience it  is  strongly  in  favor  of  the  latter 
system. 

Since  1895  several  states  have  enacted  laws 
regulating  the  placing  out  of  children  in 
families  in  those  states  by  societies  incor- 
porated in   other  states.     Such  legislation 
sprang  in  part  from  a  belief  that  crippled,  Restric- 
diseased,  deformed,  feeble-minded,  or  incor-  tions  on 
rigible  children  were  being  placed  out  in  some  oJ^^t^f^^fj^ 
of  the  western  states  from  the  large  eastern  other 
cities,  becoming  in  many  instances,  it  was  ^^^^^^ 
alleged,  public  charges,  and  that  in  some  in-  several 
stances  children  were  placed  in  improper  states, 
homes.    Another  reason  was  the  belief  on 
the  part  of  the  local  placing-out  agencies  that 
their  opportunities  for  placing  out  children 
were  diminished  by  the  placing  of  children 
in  families  in  their  states  from  eastern  cities. 
Owing  to  grave  doubt  as  to  the  constitution- 
ality of  a  law  prohibiting  the  ''importation 


1 88       PRIVATE  CHARITIES  SINCE  1875 


of  children,"  legislation  has  taken  the  form  of 
regulation,  such  regulation  sometimes  being 
so  rigorous  as  to  amount  in  practice  to  prohi- 
Michigan.  bition.  Michigan  passed  a  law  in  1895  re- 
quiring all  associations  or  individuals  wishing 
to  place  a  child  from  without  the  state  in  a 
home  in  Michigan  to  file  a  bond  of  ^looo 
that  such  child  shall  not  become  a  public 
charge  before  it  shall  have  reached  the 
age  of  twenty-one,  the  bond  being  forfeited 
in  case  the  child  becomes  dependent.  In- 
diana by  a  statute  of  1899  requires  a  bond 
of  $10,000,  with  a  forfeit  of  $1000  for  failure 
to  remove  any  child  becoming  a  public  charge, 
within  thirty  days  after  notice  of  such  fact 
from  the  state  board  of  charities.  These 
requirements  are  such  as  to  be  practically 
Minne-  prohibitory.  In  Minnesota,  societies  from 
^°^^*  other  states  are  required  under  a  law  of  1899 
to  give  such  guarantee  as  the  state  board  of 
charities  may  require  that  incorrigible  or  de- 
fective children  will  not  be  placed  out  in  the 
state,  and  that  children  becoming  public 
charges  within  three  years  after  being  placed 
out  will  be  removed.  Illinois  in  1899, 
Kansas  and  Pennsylvania  in  1901,  enacted 
similar  legislation. 

The  societies  and  institutions  placing  out 
children  from  the  larger  cities  in  the  east 


MOTHERS  WITH  CHILDREN  189 

deny  that  there  has  been  any  occasion  for  Such  leg- 
such  legislation.    Even  if  careless  work  had 
been  done  by  such  societies,  it  is  doubtful  ^aiue. 
whether  the  course  followed  has  been  the 
wisest  one  for  remedying  the  difficulty.  As 
to  the  belief  that  the  placing  of  children  in 
any  state  diminishes   the  opportunities  of 
local  societies  to  place  out  children  in  that  improb- 
state,  this  is  clearly  a  supposition,  and  one  able  that 

anv  seC" 

which  the  writer  believes  to  be  contrary  to  ^^^^  ^^le 

the  fact.    No  evidence  has  been  adduced  country 

indicating  that  any  state,  or  any  locality  in  ^^^^^^ 

any  state,  has  reached  the  limit  of  its  natural  homeless 

capacity  for  absorbing  orphan  and  homeless  children, 
children  into  its  normal  population  by  plac- 
ing-out  methods. 

A  method  akin  to  placing  out,  which  has 
met  much  success  in  Boston  for  the  past 
twenty  years,  and  for  shorter  periods  in  Phila- 
delphia, New  York,  and  elsewhere,  is  that  placing 
of  placing  homeless  mothers  of  young  chil- 
dren  in  situations  in  the  country  with  their  jnothers 
children.    This  avoids  making  either  mother  with  young 
or  child  a  charge  upon  charity,  gives  the  child  children 
the  advantage  of  a  mother's  care,  and  the  fuHy 
mother  the  moral  benefit  of  keeping  and  adopted  in 
caring  for  her  child.    In  Boston  this  work  ^he  larger 

...  .  cities. 

has  been  carried  on  as  an  individual  charity, 
in  Philadelphia  by  the  children's  aid  society, 


190       PRIVATE  CHARITIES  SINCE  1875 


The 
George 
junior  re- 
public, for 
wayward 
children. 


and  in  New  York  by  the  state  charities  aid 
association.  This  association  has  worked  out 
a  careful  system  of  investigation  of  the  homes 
to  which  the  women  are  sent,  and  keeps  in 
touch  with  them  while  in  situations.  It  pro- 
vided 2627  situations  for  mothers  with  their 
babies  from  the  beginning  of  the  work,  June 
I,  1893,  to  September  30,  1901. 

Among  the  institutions  recently  estab- 
lished and  worthy  of  special  note  is  the 
George  junior  republic  at  Freeville,  Tomp- 
kins county,  N.Y.  The  plan  is  that  of  or- 
ganizing the  children  in  a  miniature  republic, 
and  thus  teaching  them  the  nature  and  practi- 
cal operations  of  government  and  respect  for 
law.  There  is  also  a  special  currency,  a 
system  of  payment  for  services,  and  of 
charges  for  living  expenses,  by  which  the 
children  learn  by  experience  the  value  of 
labor  in  securing  the  necessities  and  even  the 
luxuries  of  life,  or  are  made  to  taste  the  fruits 
of  idleness.  The  system  affords  a  wonder- 
fully urgent  appeal  for  self-control,  and  an 
unusual  opportunity  to  become  worldly  wise 
in  the  art  of  living  in  society.  The  experi- 
ment is  of  great  value  in  demonstrating  the 
extent  to  which  such  methods  can  be  intro- 
duced in  institutions.  Its  methods  have 
already  been  adopted  in  part  in  several  insti- 


EDUCATIONAL  CHARITIES  191 


tutions  in  Massachusetts  and  New  York. 
While  not  distinctly  a  reformatory  institu- 
tion, the  children  at  the  republic  are  mostly 
of  a  class  who  would  otherwise  be  committed 
for  correctional  treatment. 

Other  lines   of   improvement  in  institu- 
tional management   are   suggested  by  the  charitable 
methods  of  a  group  of  small  endowed  insti-  i^stitu- 
tutions  which,  except  as  to  size,  remind  one  ^^kh  an 
of  Girard  college,  and  some  of  which  were  educa- 
doubtless  inspired  by  its  example.     These  ^lo^^l  P^^^- 
institutions  are  both  educational  and  chari-  predomi- 
table   as  to  their  primary  objects,  admis-  nant, 
sion  being  limited  to  "poor"  children.    In  ^^^^^^^ 
their  organization  and  administration,  how- 
ever, educational  considerations  predominate. 
Among  these  are   the    McDonough   farm  McDon- 
school  at  McDonough,  near  Baltimore,  re-  ^ugh  farm 
ceiving    boys  between    ten    and  fourteen 
years  of    age,  and   the  Williamson   trade  William- 
school,  Williamson,  Pa.,  near  Philadelphia.  ^^^^^ 
The  latter  institution  restricts  admission  to 
"  poor  and  deserving  boys  "  from  sixteen  to 
eighteen  years  of   age,  inclusive.     In  the  Jewish 
promising  national  farm  school  at  Doyles-  ^^^^^^^^ 
town.  Pa.,  under  Jewish  auspices,  the  charity  school, 
feature  is  still  less  evident,  admission  not 
being   limited  to  poor  boys,  though  free 
maintenance  as  well  as  free  education  is 


192       PRIVATE  CHARITIES  SINCE  1875 


Foulke 
and  Long 
institute. 


Samuel 
Ready 
asylum. 


The 

Egenton 
asylum. 


Hampton 
and 

Tuskegee. 


provided,  and^  preference  is  given  in  admit- 
ting inmates  to  graduates  of  orphan  asy- 
lums and  similar  institutions. 

Among  institutions  for  girls,  similar  to 
those  mentioned  above,  are  the  Foulke  and 
Long  institute  of  Philadelphia,  receiving 
orphan  .girls  from  eleven  to  eighteen  years  of 
age,  the  Samuel  Ready  asylum  for  orphan 
girls,  of  Baltimore,  and  the  Egenton  female 
orphan  asylum,  also  of  Baltimore.  The 
Samuel  Ready  asylum,  opened  in  1887,  has 
an  endowment  of  half  a  million  dollars  and 
valuable  real  estate.  Admission  is  by  com- 
petitive examination.  The  girls  are  admitted 
at  from  five  to  fourteen  years  of  age,  are 
kept  until  eighteen,  and  are  taught  dress- 
making, typewriting,  bookkeeping,  music, 
and  other  means  of  earning  a  livelihood. 
The  Egenton  asylum,  opened  in  1880,  re- 
ceives an  annual  income  of  ;^  10,000  from  its 
endowment.  It,  too,  aims  to  receive  the 
more  promising  class  of  orphans,  from  four 
to  eight  years  of  age,  and  to  give  them 
special  training.  It  is  contemplating  re- 
moval from  the  city  to  the  country. 

When  we  pass  to  such  institutions  as 
Hampton  and  Tuskegee,  in  which  the  pupils, 
all  over  sixteen  years  of  age,  pay,  by  cash  or 
labor,  for  their  board  and  lodging,  receiving 


FURTHER  TYPES 


free  of  charge  only  their  instruction,  we  may 
consider  that  we  have  left  charity  behind, 
and  are  in  the  ranks  of  strictly  educational 
institutions. 

The  Cincinnati  children's  home,  the  Cleve- 
land protestant  orphan  asylum,  and,  to  a  less 
degree,  the  Chicago  orphan  asylum,  have  other  in- 
laid special  stress  upon  the  temporary  care  stitutions. 
of  children,  and  placing  them  in  families 
at  an  early  age.  The  Rose  orphans'  home 
at  Terre  Haute,  Ind.,  and  the  Washburn 
memorial  orphan  asylum  of  Minneapolis 
have  paid  greater  attention  to  institutional 
care.  In  Chicago  there  are  now  twenty- 
three  homes  and  asylums  for  children  sup- 
ported by  private  donations,  a  large  majority 
of  which  have  been  founded  since  1875. 
There  are  also  in  or  near  the  city  four  "in- 
dustrial schools,"  two  for  boys  and  two  for 
girls,  largely  supported  by  public  funds,  and 
one  foundling  asylum. 

The  number  of  institutions  and  societies 
for  caring  for  poor  children,  founded  by 
private  enterprise  and  maintained  by  private 
charity,  is  so  large  that  it  is  not  possible  even 
to  mention  many  excellent  and  notable  institu- 
tions. Scarcely  a  city  of  any  size  in  the  whole 
United  States  is  now  without  some  organized 
effort  in  behalf  of  destitute  children, 
o 


194       PRIVATE  CHARITIES  SINCE  1875 


Census  of 
children  in 
institu- 
tions, 
excepting 
reforma- 
tories. 


In  connection  with  the  census  of  1880,  Mr. 
F.  H.  Wines  prepared  a  Ust  of  homes  for 
children  in  each  state,  with  their  census  on 
June  I,  1880.  This  Hst  of  613  institutions, 
with  a  total  population  of  50,579  children, 
appears  in  the  hiternational  Record  of  Char- 
ities and  Correction,  March  and  April,  1886, 
and  a  summary  by  states  may  be  found 
in  the  proceedings  of  the  national  confer- 
ence of  charities  and  correction  of  that 
year. 

In  the  census  of  1890,  part  ii  of  the  report 
on  crime,  pauperism,  and  benevolence,  p.  882. 
also  by  Mr.  F.  H.  Wines,  the  number  of  in 
mates  of  institutions  for  children,  not  include 
ing  reformatories,  is  given  by  states  but  not 
by  individual  institutions.  There  is  also  a 
table  (pp.  894  ff.)  giving  the  census  of  each 
benevolent  institution  in  the  United  States, 
but  it  includes  hospitals,  homes  for  the  aged, 
and  other  charities,  as  well  as  homes  for  chil- 
dren, and  in  many  cases  it  is  impossible  to 
determine  the  purpose  of  the  institution 
from  its  name. 

The  following  table,  compiled  from  the 
census  returns  of  1880  and  1890,  includes 
both  public  and  private  institutions  for  the 
care  of  children,  but  does  not  include  reform- 
atories nor  children  in  families  : 


CHILDREN  IN  INSTITUTIONS  195 


Number  of  Children  in  Charitable  Institutions  in  the  United 


States,  as  Shown  by  U.  S. 

Census  in  i 

880  and  18 

90. 

Number  of 

Number  of 

institutions 

children 

... 

JS OJ^tft  A  tlCtfttZC  JJtVtStOtt 

x88o 

x88o 

1890 

6 

iq8 

iq6 

•  5 

144 

256 

176 

203 

A/r?>      pVin  Qpff  ^ 

A  C 

3463 

3,263 

7 

319 

522 

466 

728 

18,624 

22,653 

1,049 

1,574 

.  69 

7,339 

8,278 

292 

30778 

37,673 

South  Atlantic  Division 


.    .  3 

118 

163 

.    .  27 

1,653 

1,459 

District  of  Columbia  .  . 

.    .  II 

818 

•    •  13 

354 

380 

69 

74 

162 

212 

•    .  7 

397 

439 

.    •  13 

461 

502 

4 

16 

79 

3,218 

4,063 

196       PRIVATE  CHARITIES  SINCE  1875 


Number  of         Number  of 


institutions 

child 

ren 

Noyth  Ctntvul  Dtvisiott 

ZoOO 

1 000 

1890 

.    .  47 

4jI49 

5.970 

915 

1,762 

i?453 

2,703 

.     .  14 

747 

1,144 

1,117 

•    •  5 

120 

897 

Iowa  

568 

.    .  24 

1,643 

1,613 

North  Dakota  f 

South  Dakota) 

III 

55 

161 

14.7 

16,04.6 

South  Centfal  Division 

Kentucky  

18 

8IQ 

.     .  10 

362 

605 

•    •  5 

226 

340 

•    •  3 

149 

156 

1,991 

1,682 

.    .  4 

206 

473 

60 

Western  Division 

212 

— 

107 

.    .  2 

187 

49 

184 

•    .  4 

69 

105 

.    .  26 

2,509 

3.237 

35 

2,765 

3.894 

United  States  (total) 

.    .  613 

50^579 

65,651 

CHILDREN  IN  INSTITUTIONS  1 97 


100,000. 


In  view  of  the  fact  that  in  New  York  alone 
the  number  of  children  in  institutions  (not  in- 
cluding reformatories)  has  increased  to  32,600, 
the  total  census  of  children's  homes  in  the 
United  States  in  1900  may  be  conservatively  A  total  for 
estimated  at  from  80,000  to  85,000,  or,  includ-  g^^^^g^^^^ 
ing  juvenile  offenders  (numbering  11,107  probably 
1880,  and  14,846  in  1890),  at  100,000.    We  nearly 
can  only  guess  at  the  number  of  children  who 
have  been  placed  in  families,  and  now  are 
(or  ought  to  be)  under  the  supervision  of  pub- 
lic authorities  or  public  or  private  institutions 
or  societies.    If  we  were  to  venture  an  esti- 
mate we  should  place  the  number  at  not  less 
than  50,000.    It  is  to  be  regretted  that,  so 
far  as  can  now  be  ascertained,  there  will  be 
no  statistics  concerning  destitute,  neglected, 
or  delinquent  children  in  the  census  of  1900. 


CHAPTER  XI 


DELINQUENT  CHILDREN 

Historical  sources  and  discussion:  The  best  available 
literature  is  in  the  proceedings  of  the  national  conference 
of  charities  and  correction,  especially  for  1875,  1880,  1883, 
1885,  1888,  1890,  1894,  1896,  and  1897.  "Juvenile  reforma- 
tories in  the  United  States,"  T.  J.  Charlton,  in  "  The  reforma- 
tory system  in  the  United  States  "  (Government  printing  office, 
1900).  "  Boys  as  they  are  made,  and  how  to  remake  them," 
F.  H.  Briggs  (Rochester,  1894).  "A  half  century  with 
juvenile  delinquents,  or  the  New  York  house  of  refuge  and 
its  times,"  B.  K.  Pierce  (Appleton,  New  York,  1869).  As 
to  classification  see  "  Classification  of  children  needing  care, 
training,  or  reformation,"  W.  P.  Letchworth,  April,  1882  ; 
"  Classification  and  training  of  innocent  and  incorrigible 
children,"  the  same,  proceedings  national  conference,  1883; 
also,  "  Girls'  reformatories,  reasons  for  establishing  a  sepa- 
rate girls'  reformatory,  etc.,"  the  same  (Matthews,  Northrup, 
&  Co.,  Buffalo,  1887).  See  also  industrial  training  of  chil- 
dren in  houses  of  refuge  and  other  reformatory  schools,  W. 
P.  Letchworth  (Argus  Co.,  Albany,  1883).  Annual  reports 
of  the  trustees  of  the  Lyman  and  state  industrial  schools 
(State  house,  Boston);  house  of  refuge.  Glen  Mills,  Pa.; 
state  industrial  school,  Rochester  ;  house  of  refuge,  Cin- 
cinnati; industrial  school  for  girls,  Middletown, Conn.;  state 
industrial  school  for  girls,  Adrian,  Mich. 

At  the  opening  of  the  century  there  was 
not  in  existence  in  the  United  States  a  single 
institution  for  the  reformation  of  juvenile  de- 
linquents ;  children  convicted  of  offences  were 
198 


NEW  YORK  HOUSE  OF  REFUGE       1 99 


committed  to  jails  and  prisons,  along  with 

adult   offenders.    The  history   of  juvenile  Trend  of 

reformation  during  the  century  may  be  epito-      f^^"  , 

^  1  tury'swork 

mized  in  a  sentence,  —  the  removal  of  youth-  juve- 
f ul  offenders  from  association  with  adults,  and  niie  deiin- 
their  treatment  from  an  educational  and  re- 
formatory,  instead  of  a  punitive,  point  of  view. 

The  first  institution  for  juvenile  delinquents 
in  this  country  (several  were  in  existence  in 
Europe)  was  established  in  New  York  city. 
On  December  16,  18 17,  several  prominent 
citizens  met  at  the  New  York  hospital  to  con- 
sider the  prevailing  causes  of  pauperism. 
Two  months  later  they  organized  the  "  society  Origin  of 

for  the  prevention  of   pauperism.*'     This  ^heNew 

:    ,  . ,      ,  1     .     .  York 

society  wisely  considered,  very  early  m  its  house  of 

deliberations,  the  condition  of  the  various  refuge, 
city  institutions,  and  in  its  second  report, 
dated  December  29,  18 19,  attention  was 
called  to  the  fact  that  in  the  Bellevue  prison, 
located  on  the  same  grounds  as  the  almshouse 
and  city  hospital,  no  separation  was  made  be- 
tween mature  and  juvenile  offenders.  The 
report  says,  —  Here  is  one  great  school  of 
vice  and  desperation;  with  confirmed  and 
unrepentant  criminals  we  place  these  novices 
in  guilt,  —  these  unfortunate  children  from 
ten  to  fourteen  years  of   age,  who  from 

\ 


200  DELINQUENT  CHILDREN 

neglect  of  parents,  from  idleness  or  mis- 
fortune, have  been  doomed  to  the  peniten- 
tiary by  condemnation  of  law.*'  After 
asking,  And  is  this  the  place  for  reform  ?  " 
the  report  makes  a  recommendation,  which, 
though  at  that  time  a  notable  step  in  advance, 
would  now  raise  a  storm  of  indignation  if  pro- 
posed in  any  one  of  our  forty-five  states.  It 
proposed  the  erection,  at  moderate  expense, 
of  a  building  within  the  penitentiary  enclos- 
ure, for  the  youthful  convicts.  The  recom- 
mendation was  not,  however,  carried  into 
effect,  and  subsequent  reports  reiterated  the 
folly  of  committing  children  to  prison  along 
with  hardened  offenders. 

The  annual  report  of  the  society  in  1823 
was  devoted  almost  wholly  to  this  subject, 
and  advocated  the  establishment  of  a  house 
of  refuge  for  juvenile  offenders,  after  their 
discharge  from  prison.  In  June,  1823,  upon 
the  motion  of  Isaac  Collins,  afterward  prom- 
inently connected  with  the  Philadelphia  house 
of  refuge,  a  committee  was  appointed  to  pre- 
pare and  report  at  a  later  meeting  a  detailed 
plan  for  a  house  of  refuge,  and  such  a  plan 
was  submitted  on  December  19,  1823,  at  a 
pubUc  meeting.  The  purposes  of  the  institu- 
tion as  outlined  in  this  report  were : 

I.  To  furnish,  in  the  first  place,  an  asylum 


NEW  YORK  HOUSE  OF  REFUGE  201 


in  which  boys  under  a  certain  age,  who  become 
subject  to  the  notice  of  our  police,  either  as 
vagrants>  or  houseless,  or  charged  with  petty 
crimes,  may  be  received.  .  .  . 

2.  The  committee  have  no  doubt  that  were  Purposes 
such  an  institution  once  well  established  and  - 

house  of 

put  under  good  regulations,  the  magistrates  refuge, 
would  very  often  deem  it  expedient  to  place 
offenders  in  the  hands  of  its  managers,  rather 
than  sentence  them  to  the  city  penitentiary. 

3.  A  third  class,  which  it  might  be  very 
proper  to  transplant  to  such  an  establish- 
ment and  distribute  through  its  better  divi- 
sions, are  boys,  some  of  whom  are  of  tender 
age,  whose  parents  are  careless  of  their  minds 
and  morals,  and  leave  them  exposed  in  rags 
and. filth  to  misei^able  and  scanty  fare,  destitute 
of  education,  and  liable  to  become  the  prey  of 
criminal  associates. 

4.  Youthful  convicts,  who  on  their  dis- 
charge from  prison,  at  the  expiration  of  their 
sentence,  finding  themselves  without  charac- 
ter, without  subsistence,  and  ignorant  of  the 
means  by  which  it  is  to  be  sought,  have  no 
alternative  but  to  beg  or  steal. 

5.  Delinquent  females  who  are  either  too 
young  to  have  acquired  habits  of  fixed  de- 
pravity, or  those  whose  lives  have  in  general 
been  virtuous. 


202  DELINQUENT  CHILDREN 


The  meeting  decided  to  form  a  society  for 
the  reformation  of  juvenile  dehnquents,  and 
$800  was  subscribed  for  its  purposes.  The 
active  workers  in  the  society  for  the  preven- 
tion of  pauperism  became  members  of  the 
new  society,  and  the  old  organization  ceased 
to  exist.  The  following  March,  1824,  the 
society  was  incorporated  by  a  special  act  of 
the  legislature.  Application  was  made  to 
the  city  council  for  a  grant  of  land,  and  a 
site  containing  about  four  acres,  including  the 
space  now  lying  between  Fifth  and  Madison 
avenues,  from  Twenty-third  to  Twenty-sixth 
streets,  which  had  been  ceded  to  the  federal 
government  to  be  used  as  an  arsenal,  was 
transferred  to  the  society  for  the  sum  of 
$6000,  of  which  $4000  was  subsequently 
remitted.  This  site  was  then  about  a  mile 
from  the  outskirts  of  the  city,  and  was  sur- 
rounded by  farms.  Here,  in  the  old  soldiers' 
barracks,  on  January  21,  1825,  the  first  insti- 
tution for  the  reformation  of  juvenile  delin- 
quents in  the  United  States  was  opened,  six 
girls  and  three  boys  having  been  brought  in 
Provision  by  the  police  to  be  cared  for.  Immediately 
made  for  upon  the  Opening  of  the  institution  the  con- 
and^g^rir  struction  of  a  separate  building  for  girls  was 
begun,  and  it  was  dedicated  on  Christmas 
day,  1825.    The  state  legislature  had  made 


NEW  YORK  HOUSE  OF  REFUGE  203 


an  appropriation  of  ;^S2000  to  the  institution 
in  1825;  in  1826  an  act  was  passed  author- 
izing the  institution  to  receive  children  from 
any  city  or  county  in  the  state,  and  provid- 
ing that  the  commissioners  of  health  should 
pay  to  the  institution  any  surplus  from  their 
funds  not  required  for  the  maintenance  of 
the  marine  hospital.    For  the  first  five  or  six  income 
years  contributions  were  taken  up  at  the  Practically 
annual  meetings,  and  collected  from  early  public 
subscribers,  but  after  that  time  the  receipts  funds, 
were  wholly  from  public  sources,  state  or 
municipal. 

It  appears  that  very  early  in  its  history 
the  plan  of  sending  children  to  the  west  was 
in  vogue.  The  daily  journal  kept  by  the  placing 
superintendent  contains  the  following  entry  ^^t- 
for  May  10,  1828  :  "We  saw  the  eight  boys 
for  Ohio  start  in  good  spirits.  ...  It  excited 
considerable  warm  good  feeling  to  see  so 
many  little  fellows  bound  for  such  a  good 
and  suitable  place  from  the  house  of  refuge, 
among  the  passengers  on  board  the  steam- 
boat." 

In  an  interesting  report  "  On  the  peniten- 
tiary system  in  the  United  States,''  made  by  * 
the  French  writers,  Beaumont  and  de  Tocque- 
ville,  who  visited  the  United  States  in  1833, 
considerable  space  is  devoted  to  the  New  York, 


204  DELINQUENT  CHILDREN 


Character 
of  the  in- 
stitution's 
work. 


Boston,  and  Philadelphia  houses  of  refuge; 
the  plan  of  the  New  York  institution  is  com- 
mended, though  the  results  as  stated  would 
not  be  considered  very  encouraging  at  the 
present  time.  The  visitors  made  an  inquiry 
as  to  the  conduct  of  all  the  children  who  had 
left  the  refuge,  and  reported  that,  Of  427 
male  juvenile  offenders  sent  back  into  society, 
eighty-five  have  conducted  themselves  well, 
and  the  conduct  of  forty-one  has  been  excel- 
lent; of  thirty -four  the  information  received 
is  bad,  and  of  twenty-four  very  bad ;  of  thirty- 
seven  among  them  the  information  is  doubtful ; 
of  twenty-four  rather  good  than  otherwise,  and 
of  fourteen  rather  bad  than  good.  Of  eighty- 
six  girls  who  have  returned  into  society,  thirty- 
seven  have  conducted  themselves  well ;  eleven 
in  an  excellent  manner ;  twenty-two  bad,  and 
sixteen  very  bad  ;  the  information  concerning 
ten  is  doubtful ;  three  seem  to  have  conducted 
themselves  rather  well,  and  three  rather  bad 
than  otherwise.  Thus  of  513  children  who 
have  returned  from  the  house  of  refuge  in 
New  York  into  society  more  than  200  have 
been  saved  from  infallible  ruin.'' 

By  1839  the  growth  of  the  city  had  reached 
the  institution,  and  it  was  proposed  to  open 
Twenty-fifth  street  through  its  grounds.  As 
a  result  this  site  was  abandoned,  and  what 


NEW  YORK  HOUSE  OF  REFUGE  20$ 


had  beeil  known  as  the  Bellevue  fever  hospi- 
tal, with  a  block  of  ground  between  Twenty- 
third  and  Twenty-fourth  streets,  extending 
from  First  avenue  to  the  East  river,  was 
given  by  the  city  for  this  purpose.  On  Oc- 
tober lo,  1839,  the  children  were  removed  to 
the  new  institution.  In  the  report  of  this 
year  it  is  remarked  that  the  children  are  re- 
tained for  an  average  period  of  one  year,  at 
a  per  capita  expense  of  ^1.27  per  week. 

Ten  years  later,  in  1848,  the  355  inmates 
of  the  institution  exceeded  considerably  its 
proper  capacity,  and  a  committee  was  ap- 
pointed to  consider  the  best  mode  of  pro- 
viding additional  accommodations,  and  also 
of  securing  better  classification.  In  1850  the 
committee  reported  in  favor  of  a  change  of 
location,  and  an  application  was  made  to  the 
/  state  legislature  for  aid  to  erect  two  buildings. 
The  city  gave  its  consent  to  the  sale  of  the 
property  at  Twenty-third  street  and  East 
river  and  the  use  of  the  proceeds  towards  the 
purchase  of  another  site.  Ten  and  one  half 
acres  of  land  on  the  west  shore  of  Ward's 
island  were  first  purchased,  but  before  steps 
were  taken  for  its  improvement  an  exchange  Remo>|pd 
was  made  with  the  city  for  thirty  acres  of 
rocky  and  marshy  land  on  the  south  shore  of  jgiand, 
Randall's  island.     The  legislature   appro-  1854. 


206  DELINQUENT  CHILDREN 

priated  $50,000  for  the  erection  of  new  build- 
ings, the  cornerstone  of  which  was  laid  No- 
vember 24,  1852.  In  an  address  on  this 
occasion  one  of  the  speakers  stated,  alluding 
to  the  nursery  for  destitute  children"  main- 
tained by  the  city  on  the  same  island,  We 
mean  to  be  good  neighbors,  only  we  intend 
to  compete  with  them  in  the  supply  of  appren- 
tices, and  gain,  if  we  can,  the  reputation  of 
furnishing  the  most  useful  and  best  behaved 
children.  Our  formidable  wall  of  enclosure 
will  protect  our  children  from  the  contamina- 
tion of  theirs,  or  vice  versa,  as  the  case  may 
be.''  The  sale  of  the  Twenty-third  street 
property  realized  nearly  $175,000;  the  re- 
mainder of  the  total  cost  of  $470,000  was 
met  by  the  state.  On  the  last  day  of  Octo- 
ber, 1854,  the  inmates,  400  in  number,  were 
removed  from  Twenty-third  street  and  East 
river  to  the  Randall's  island  buildings,  which 
the  institution  still  occupies.  This  combina- 
tion of  city  aid,  state  aid,  and  private  control 
now  proves  to  be  a  serious  embarrassment, 
since  it  has  become  desirable  to  remove  to  a 
country  site,  with  larger  opportunities  for 
4  agricultural  training  and  with  buildings 
erected  upon  the  cottage  system. 

Though  this  institution  was  the  pioneer  in 
the  field,  and  has  always  remained  under  the 


BOSTON  HOUSE  OF  REFORMATION  20/ 


management  of  some  of  the  most  distinguished 
citizens  of  the  metropoUs,  it  did  not  continue 
to  lead  in  the  work  which  it  had  so  nobly  Thisin- 
besrun.    During  the  last  quarter  of  the  cen-  stitution, 

....         ,  1  ,  under  pri- 

tury  other  mstitutions  have  taken  the  van  ^^te  con- 
in  such  improvements  as  the  abandonment  trol,  has 
of  the  system  of  contract  labor  (which  was  f^^^^^ 

^  keep  pace 

Strongly  upheld  by  a  manager  of  this  institu-  with  other 
tion  at  a  national  conference  of  charities  and  Public  and 
correction  in  1883);  the  abolition  of  the  cell  gtUutionr' 
system  ;  the  introduction  of  industrial  training 
for  purposes  of  instruction;  and  the  partial 
or  complete  abolition  of  corporal  punishment. 
It  is  a  singular  fact  that  this  institution,  con- 
trolled by  a  private  corporation,  the  mana- 
gers of  which  have  always  been  among  the 
most  respected  citizens  of  New  York,  has 
failed  to  keep  pace,  in  these  directions,  with 
other  institutions,  many  of  which  are  con- 
trolled by  managers  appointed  by  governors 
of  states,  or  other  public  authorities. 

The  second  juvenile  reformatory  in  the 
United  States  was  a  strictly  municipal  institu-  Boston  es- 
tion,  the  house  of  reformation  for  juvenile  tabhsheda 

rr      1  1  T  1     1  1        1        .         r  municipal 

offenders,  established  by  the  city  of  Boston  ^ous^j  of 

in  1826,  and  located  in  a  portion  of  the  build-  reforma- 

ing  of  the  house  of  correction   for  adult  j^g^e^" 
offenders.     In  1837  it  was  removed  to  a 
separate  building,  but  still  near  the  house  of 


208  DELINQUENT  CHILDREN 

correction.  In  1840  a  committee  was  ap- 
pointed to  consider  the  wisdom  of  having 
both  boys  and  girls  in  the  one  institution. 
Dr.  Samuel  G.  Howe  reported  for  the  com- 
mittee and  in  favor  of  separation.  He  was 
of  the  opinion  that  the  number  of  happy 
cases  of  reformation  may  be  increased  by 
(i)  placing  children  with  virtuous  famihes  in 
the  country  as  soon  as  possible  after  their 
committal,  and  without  waiting  even  for  them 
to  be  taught  to  read  and  write  in  the  house 
(this  he  did  not  consider  practicable  in  all 
cases),  and  (2)  *^by  so  administering  the 
house  that  there  shall  be  more  classification/* 
The  decision  in  favor  of  the  removal  of  the 
girls  was  complied  with,  but  in  the  following 
year,  on  the  recommendation  of  the  superin- 
tendent, who  believed  that  he  could  reform 
boys  and  girls,  too,  in  the  same  house,**  they 
were  readmitted. 

During  the  early  years  of  its  existence  the 
house  of  reformation  was  the  subject  of  much 
discussion,  suffering  almost  equally  from  ill- 
considered  praise  and  from  unmerited  odium. 
It  was  the  subject  of  frequent  changes  of  gov- 
ernment and  of  organization.  By  some  it  was 
regarded  as  so  desirable  a  school  for  boys 
that  parents  endeavored  to  have  their  chil- 
dren placed  there  without  legal  or  just  cause. 


BOSTON  HOUSE  OF  REFORMATION  20g 


Again,  it  was  represented  as  a  prison  of 
severe  character,  and  unceasing  efforts  were  This  insti- 
made  to  procure  the  discharge  of  boys,  even  ^^^^^^ 
when  committed  for  serious  offences.  In  1841,  ^uch  from 
on  account  of  various  criticisms  which  had  led  changes  of 
the  courts  to  commit  but  few  children,  the  g^vern- 

...  ment  and 

abandonment  of  the  mstitution  was  proposed,  organiza- 
a  large  part  of  the  buildings  being  unoccupied,  tion. 
It  was  at  this  time  that  the  institution  was 
placed  under  the  control  of  the  directors  of 
the  house  of  industry.  In  1846  we  learn  that, 
during  the  preceding  two  years,  the  older  boys 
had  been  employed  by  contractors  at  light 
shoe-making,  which  had  yielded  a  revenue  of 
nearly  ;^iooo  a  year.  In  185 1  the  commit- 
ment of  truants  to  the  house  of  reformation 
was  authorized ;  a  few  years  later  the  mana- 
gers complained  that  the  institution  had  be- 
come crowded  with  truants,  committed  for 
from  three  to  six  months  only.  The  house 
of  reformation  was  removed  to  Deer  island  in 
1858,  and  in  i860  a  separate  building  for  the 
girls,  also  on  the  island,  was  provided.  In 
1889  the  department  for  girls  was  closed,  all 
wayward  girls  being  sent  thereafter  to  the 
state  institution  at  Lancaster.  In  1895  the 
boys'  department  was  removed  from  Deer 
island  to  Rainsford's  island.  It  remained 
under  the  charge  of  the  same  city  officials  as 


2IO 


DELINQUENT  CHILDREN 


Associa- 
tion with 
adult  pau- 
per and 
correc- 
tional in- 
stitutions 
harmful. 


Efforts  to 
remove  to 
a  country 
site  so  far 
unsuccess- 
ful. 


Philadel- 
phia house 
of  refuge, 
1828. 


the  juvenile  and  adult  paupers  and  offenders 
until  1897,  when  a  separate  department  for 
children  was  established.  The  institution  has 
always  suffered  seriously  from  its  association, 
both  territorially  and  in  the  public  mind,  with 
institutions  for  the  care  of  adult  paupers  and 
prisoners.  For  many  years  the  best  public 
opinion  of  Boston  has  favored  its  removal 
from  the  island  to  a  country  location,  but  thus 
far  a  sufficient  public  sentiment  to  enable  the 
city  to  make  this  desirable  change  has  not 
been  secured.  The  trustees  of  the  children's 
institutions  department  strongly  urged  the 
change  in  their  report  for  1900,  and  in  1901 
legislation  was  secured  authorizing  removal 
to  the  mainland,  within  or  outside  of  the  city, 
and  the  change  of  the  name  to  "  Suffolk 
school  for  boys,"  both  changes  being  subject 
to  the  approval  of  the  city  authorities  by  a 
two-thirds  vote.  Such  approval  has  not  yet 
been  given. 

The  third  juvenile  reformatory  in  the  United 
States  was  the  Philadelphia  house  of  refuge, 
the  first  meeting  for  the  organization  of  which 
was  held  February  7,  1826.  The  institution 
was  opened  November  29,  1828.  In  its 
organization  it  followed  very  closely  the 
plan  of  the  New  York  institution.  The  board 
of  managers  was  a  private  corporation,  and 


PHILADELPHIA  HOUSE  OF  REFUGE  211 


has  so  continued  to  the  present,  though  under 
the  present  law,  of  the  twenty-eight  managers, 
two  are  appointed  by  the  mayor  and  three  by 
the  court  of  common  pleas  of  Philadelphia 
county.  At  the  opening  of  the  institution 
the  fact  was  emphasized  that  it  was  not  to  be 
a  prison,  but  *'a  work  of  charity  and  mercy; 
the  refuge  is  not  a  place  of  punishment ; .  it  is 
not  a  provision  simply,  or  even  principally, 
for  the  security  of  society  against  offences  by 
the  confinement  of  the  culprits,  or  for  inflict- 
ing the  vengeance  of  society  upon  offenders 
as  a  terror  to  those  who  may  be  inclined  to 
do  evil.  In  the  accents  of  kindness  and  com- 
passion it  invites  the  children  of  poverty  and 
ignorance,  whose  wandering  and  misguided 
steps  are  leading  them  to  destruction,  to  come 
to  a  home  where  they  will  be  sheltered  and 
led  into  the  ways  of  usefulness  and  virtue." 
After  remaining  at  the  original  site  for  twenty 
years,  the  house  of  refuge  was  removed  to 
Twenty-second  and  Poplar  streets,  which  was 
then  a  rural  district.  From  here  the  boys'  Removal 
department  was  removed  in  1892  to  Glen  of  boys' 
Mills,  Delaware  county.  Pa.,  to  a  farm  of  menTto 
410  acres  and  to  buildings  erected  on  the  Glen  Mills, 
cottage  system.  The  girls'  department  re- 
mains at  Twenty-second  and  Poplar  streets, 
in  the  city.    At  present  and  for  some  years 


212    '  DELINQUENT  CHILDREN 

the  cost  of  maintenance  has  been  divided 
about  equally  between  the  city  of  Phila- 
Private      delphia  and  the  state.    The  fact  that  the  in- 
control,      stitution  is  under  the  control  of  a  private 

with  pub- 
lic main-    Corporation,  though  doubtless  of  great  advan- 

tenance,     tage  in  many  ways,  is  probably  something  of 

m  some     ^  drawback,  as  it  is  also  in  New  York  city, 

respects  a  '  , 

drawback,  in  securing  needful  appropriations  for  addi- 
tional buildings.  During  the  past  year  the 
legislature  was  asked  for  a  special  appropri- 
ation for  an  additional  cottage  for  the  boys, 
and  at  the  same  time  the  managers  endeavored 
to  raise  by  subscription  funds  for  erecting 
another  building  in  the  girls'  department. 
It  is  significant,  however,  that  two  years 
ago  one  of  the  managers  gave  to  the  institu- 
tion a  splendid  gymnasium,  drillroom,  and 
swimming  pool,  probably  a  more  serviceable 
building  for  these  purposes  than  would  be 
provided  by  any  state  or  municipal  adminis- 
tration. Here,  as  in  another  institution  re- 
ferred to  later,  a  separate  cottage  for  the 
younger  boys  was  provided  during  1898.  A 
news  sheet,  the  Glen  Mills  Daily ^  is  issued 
every  day  except  Sunday.  The  industrial 
schools  of  the  Philadelphia  institution  have 
taken  high  rank  during  the  past  decade. 
Comparatively  little  use  is  made  of  the 
placing-out  system :  of  423  boys  discharged 


NEW  ORLEANS 


213 


during  1900,  324  were  returned  to  friends;  Most  of 
thirty-eight  were  indentured ;  forty-three  were  ^^^^^^^^ ' 
discharged  by  order  of  court  or  were  returned  turned  to 
to  court ;  ten  were  discharged  *'to  find  work'';  relatives, 
two  on  recommendation  of  physician ;  one  to 
an  almshouse ;  and  five  died.    A  careful  sys- 
tem of  visitation  is,  however,  maintained  over 
the  boys  indentured,  as  also  over  those  re- 
turned to  their  parents.    The  indenture  sys- 
tem would  not  seem  to  be  very  satisfactory, 
from  the  fact  that  of  the  thirty  indentured 
children  who  passed  from  the  oversight  of 
the  visiting  agent  during  the  year,  four  were 
returned  to  the  institution,  fifteen  absconded, 
and  only  eleven  remained  until  the  maturity 
of  the  indenture.    Of  the  inmates  discharged 
from  the  girls'  department,  the  proportion  of 
those  indentured  is  somewhat  larger.    In  the  Note- 
removal  to  a  country  site,  the  separation  of  worthy 
the  boys'  and  girls'  departments,  the  develop-  i^nstitu- 
ment  of  industrial  training  for  purposes  of  tion's 
instruction,  and  in  the  relaxation  of  the  former 
severity  of  discipline,  this  institution  has  taken 
an  advanced  position. 

The  next  juvenile  reformatory  was  not 
founded  until  seventeen  years  later,  when  New 
the  boys'  house  of  refuge  was  established  as  Orleans 

.  .     1   .  •       1       1        •         r  house  of 

a  municipal  mstitution  by  the  city  of  New  refuge, 
Orleans.    It  was  opened  in  1847,  receiving  1847, 


214  DELINQUENT  CHILDREN 


sixteen  boys  that  year.  The  census  increased 
rapidly,  and  in  1857  was  182.  A  girls'  de- 
partment was  added  in  1852,  but  was  subse- 
quently discontinued.  The  boys'  department 
remains  a  municipal  institution,  but  has 
passed  through  many  vicissitudes,  and  has 
of  little  become  rather  more  a  lodging  and  boarding 
real  value   ^Q^se  for  homclcss  bovs  and  vagrant  boys 

inreiorma-  .  j  <j  j 

torywork.  Committed  for  short  terms  than  a  reforma- 
tory. So  far  is  it  from  meeting  the  needs 
of  Louisiana  in  this  direction  that  a  strong 
effort  was  made  in  1901  to  establish  a  state 
reformatory  for  boys.  Although  the  bill 
was  not  passed,  the  board  of  control  of  the 
prisons  was  authorized  to  establish  such  an 
institution  whenever  the  funds  of  the  state 
will  permit. 

In  1847  the  Lyman  school  for  boys  was 
established  by  the  state  of  Massachusetts, 
upon  the  suggestion  of  Hon.  Theodore 
The  Ly-  Lyman,  ex-mayor  of  Boston,  who  gave  to 
manschool  ^^e  State  a  considerable  sum  for  this  pur- 
i847,°man-  P^sc.  The  institution  was,  however,  from 
aged  by  the  first.  Strictly  a  state  institution  in  its 
the  state     manas^ement,  and  was  the  first  of  this  char- 

ofMassa-  1  •     1    o  -r  •  1 

chusetts.  acter  in  the  United  States,  if  not  in  the 
world.  We  are  told  that  several  cities, 
Lowell,  Worcester,  Cambridge,  and  others, 
had  estabhshed  reform  schools  in  connec- 


THE  LYMAN  SCHOOL 


215 


tion  with  their  almshouses,  but  these  institu- 
tions were  probably  of  the  character  of  homes 
for  destitute  and  neglected  children  rather 
than  of  juvenile  reformatories.  The  institu- 
tion was  located  at  Westboro,  where  it  still 
remains.  In  accordance  with  Mr.  Lyman's 
suggestion  the  commitments  to  the  school  Age  limits, 
were  during  minority,  and  were  limited,  ex- 
cept in  special  cases  approved  by  the  trus- 
tees, to  children  under  fourteen  years  of 
age;  the  upper  age  limit  was,  however, 
soon  extended  to  sixteen,  with  an  alterna- 
tive sentence  for  a  less  period  to  the  house 
of  correction  or  other  penal  institution. 
Many  inmates  preferred  a  shorter  sentence 
in  a  penal  institution,  and  attempted  to 
secure  such  transfer  by  bad  conduct  in  the 
/reform  school.  In  1859  the  alternative  sen 
tence  was  abolished  ;  a  school-ship  or  nautical 
branch  was  established,  and  the  age  for  com- 
mitment limited  to  fourteen.  Many  of  the 
children  upon  leaving  the  school  were  inden- 
tured to  persons  approved  by  the  trustees, 
but  they  were  not  visited.  When  the  state 
visiting  agency  was  established  in  1869,  it 
found  great  opportunity  for  improvement  in 
the  selection  of  families,  and  thenceforth  a 
report  from  the  visiting  agent  was  required 
before  a  child  was  placed  in  a  family. 


2l6  DELINQUENT  CHILDREN 


In  1879  the  boards  of  trustees  of  the  state 
charitable  institutions  were  abolished,  and  the 
state  reform  school  for  boys,  the  state  indus- 
trial school  for  girls,  and  the  state  primary 
school  were  placed  under  one  board,  the  trus- 
tees of  the  state  primary  and  reform  schools. 
After  the  abolition  of  the  school-ship  in  1872, 
the  reform  school  for  boys  suffered  from  a 
change  in  the  law,  requiring  it  to  receive  boys 
up  to  seventeen  years  of  age.  This  was  re- 
pealed, however,  when  the  Concord  reforma- 
tory was  established  in  1884.  The  reform 
school  for  boys  was  thenceforth  known  as 
the  Lyman  school  for  boys.  It  was  removed 
The  to  a  different  site,  without  walls  or  enclosed 
cottage      yards,  and  with  buildings  on  the  cottage  sys- 

system  .  .  .  .  1 

adopted.    '^^'^  J  commitment  was  limited  to 

fifteen  years.  A  careful  oversight  is  now 
maintained  over  children  who  have  been  in- 
dentured, and  a  few  of  the  younger  children 
are  boarded  in  families,  with  the  alternative 
of  a  return  to  the  school  if  they  misbehave. 
The  Lyman  school  has  carried  the  cottage 
system  more  nearly  to  its  logical  conclusion 
than  most  boys*  reformatories ;  its  cottages 
are  smaller,  more  homeUke,  and  more  widely 
scattered ;  it  emphasizes  manual  training  in 
addition  to  trade  teaching,  and  personal  and 
moral  influences  rather  than  institutional  meth- 


HOUSE  OF  REFUGE,  ROCHESTER  21/ 


ods ;  and  individualizes  the  treatment  of  its  individual 
inmates  to  a  marked  extent.    It  has  justly  ^'^eatment. 
earned  the  confidence  of  the  people,  and 
occupies  a  very  high  place  among  reform 
schools  for  boys  in  the  United  States. 

Two  years  after  the  establishment  of  the 
Lyman  school,  the  western  house  of  refuge 
,  in  New  York,  a  purely  state  institution,  located 
in  Rochester,  was  opened.    At  first  this  was 
an  institution  for  boys  only,  girls  from  all 
portions  of  the  state  still  being  sent  to  the  The  west- 
institution  in  New  York  city.     The  first  em  house 
superintendent  of  the  Rochester  institution  New^^o^rk 
had  for  five  years  filled  the  corresponding  state,  of 
position  in  the  house  of  refuge  in  New  York  ^^^^  7^^^^^ 

rr^.       ^     ,  .      7     .  r  emphasiz- 

city.  The  Rochester  mstitution  was  for  ing  trade 
many  years  not  unlike  most  institutions  of  teaching, 
its  class.  During  the  past  fifteen  years, 
however,  it  has  made  very  rapid  advances  in 
introducing  modern  methods  of  discipline,  and 
more  especially  in  the  development  of  its 
industries  and  in  the  teaching  of  trades,  in 
which  it  was  a  pioneer.  Its  site,  owing  to 
the  growth  of  the  city  of  Rochester,  has  be- 
come too  valuable  to  be  longer  used  for  such 
purposes,  and  its  buildings  are  of  obsolete 
type.  Under  legislation  of  1899  ^  commis- 
sion selected  a  country  site  for  the  insti- 
tution.    The  necessary  legislation  for  its 


2l8  DELINQUENT  CHILDREN 


Need  of  a 
separate 
institution 
for  girls. 


Cincinnati. 


House  of 
refuge  of 
western 
Pennsyl- 
vania, 


purchase  in  1900  was  not  secured,  nor  was 
a  similar  bill  in  1901  successful.  It  is  still 
hoped,  however,  that  the  removal  may  be 
made  within  a  very  few  years.  It  would  be 
very  desirable  if  the  girls'  department  of  the 
state  industrial  school  of  Rochester  and  that 
of  the  house  of  refuge  could  both  be  discon- 
tinued and  a  separate  institution  for  wayward 
girls  established. 

One  year  after  the  estabUshment  of  the 
western  house  of  refuge  at  Rochester,  the 
first  juvenile  reformatory  west  of  the  Alle- 
ghany mountains  was  founded  by  the  city  of 
Cincinnati.  This  institution  was  established, 
and  is  still  conducted,  on  the  congregate 
system,  and  is  one  of  the  best  of  the  reforma- 
tories on  that  system.  It  has  laid  special 
emphasis  on  its  industrial  department,  and 
has  not  developed  to  any  great  extent  its 
placing-out  work. 

In  185 1  Pennsylvania,  following  the  ex- 
ample set  by  New  York  two  years  earlier, 
established  the  house  of  refuge  of  western 
Pennsylvania,  at  Morganza.  This  was  at 
first  a  voluntary  association,  but  subsequently 
the  counties  in  the  western  judicial  district  of 
Pennsylvania  were  authorized  to  subscribe 
not  exceeding  $10,000  each  to  the  building 
fund  of  the  institution ;  and  each  county  so 


HOUSE  OF  REFUGE,  MORGANZA  2ig 


combined 
state  and 


subscribing  was  authorized  to  appoint  one 
manager  for  every  $2500  subscribed,  such 
managers  to  be  in  addition  to  those  selected 
by  the  voluntary  association.  The  institution 
was  at  first  located  in  the  city  of  Allegheny, 
but  in  1872  was  authorized  to  move  to  a 
country  site,  not  more  than  fifty  miles  distant 
from  Pittsburgh,  and  moved  to  Morganza, 
Washington  county.  In  1875  the  statute  was 
amended  so  that  the  power  of  appointing 
managers  was  vested  solely  in  the  governor,  under 
except  as  to  such  managers  as  were  then  ap- 
pointed by  the  counties  that  had  contributed  county 
to  the  building  fund.  The  voluntary  member-  support, 
ship  was  abolished,  and  the  institution  be- 
came strictly  a  state  institution.  The  cottage 
system  was  adopted  by  this  institution  when 
it  removed  from  the  city  of  Allegheny  to  its 
country  location  in  December,  1876.  The 
boys  and  girls  are  divided  into  eight  families. 
The  institution  receives  about  one  third  of  its 
support  from  the  state,  and  two  thirds  from 
the  counties  from  which  its  inmates  are  re- 
ceived. 

The  boys'  house  of  refuge  was  organized 
in  Baltimore  in  1849  and  opened  in  1855. 
In  its  government  it  was  curiously  complex.  House  of 
ten  of  the  twenty-four  managers  being  ap-  ^^^^^ge  of 
pointed  by  the  mayor,  ten  by  the  subscribers 


220  DELINQUENT  CHILDREN 


The  Ohio 
school  at 
Lancaster, 
a  pioneer 
in  the 
cottage 
system. 


to  its  funds,  and  four  by  the  governor.  Its 
support  was  likewise  partly  state,  partly  muni- 
cipal, and  partly  private.  This  institution 
early  laid  great  stress  on  its  educational  work. 
A  girls'  department  was  maintained  until  the 
separate  female  house  of  refuge  was  estab- 
lished. Manual  training  was  introduced  in 
1 89 1,  both  state  and  city  making  appropria- 
tions for  this  purpose.  The  placing-out 
system  was  worked  out  more  carefully  than 
was  common  with  such  institutions. 

The  reform  school  for  boys  opened  at  Lan- 
caster, Ohio,  in  1856,  introduced  the  new  type 
of  institution  variously  known  as  the  open, 
cottage,  or  family  system.  The  object  was 
to  introduce  more  of  the  features  of  family 
life,  to  encourage  self-control  by  placing 
greater  reliance  upon  the  boys,  and  to 
separate  them  into  grades,  on  the  basis  of 
character  and  conduct.  This  school  was  a 
pioneer  in  these  directions,  but  its  example  was 
followed  in  many  states,  and  has  taken  prece- 
dence over  the  earlier  congregate  plan. 

The  New  Jersey  reform  school  for  boys 
was  opened  June  28,  1867,  as  a  state  institu- 
tion. Its  early  reports  speak  in  favor  of 
many  features  which  were  not  then  commonly 
regarded  with  favor,  but  which  are  now  very 
generally  accepted.    Its  first  report  states 


OTHER  INSTITUTIONS  221 

that  "The  system  which  it  is  proposed  to 
adopt  is  to  have  families  of  boys  in  separate 
houses,  each  family  to  be  under  the  care  of  a  This 
suitable  man  and  his  wife.    The  advantae^es  ^yf^^^ 

adopted 

of  the  plan  are,  briefly,  that  such  division  also  by  the 
awakens  more  of  the  interest  and  affections  New  jer- 
of  home  in  the  minds  of  the  boys,  and  places  school, 
them  permanently  under  the  notice  and  super- 
vision of  the  parents  of  the  house,  who,  de- 
voting themselves  to  their  own  pupils,  acquire 
a  more  perfect  acquaintance  with  and  influence 
over  them  than  could  be  the  case  were  they 
in  congregate  establishments  like  the  refuges 
of  metropolitan  cities/*  The  same  report 
describes  a  "system  of  grading  which  puts 
the  character  of  each  boy  in  his  own  hands/* 
It  states  also  that  although  the  open  farm 
system  offers  almost  unlimited  freedom,  there 
had  been  but  one  attempt  to  escape,  and  that 
was  unsuccessful. 

It  is  to  be  noted  that  the  managers  of  this 
institution,  before  adopting  its  plans  for  build- 
ing and  management,  conferred  especially 
with  the  authorities  of  the  Ohio  reform 
school,  and  that  the  first  superintendent  had 
an  intimate  acquaintance  with  the  workings 
of  the  state  reform  school  at  Westboro,  Mass. 
Subsequent  reports  speak  in  high  terms  of 
the  success  of  the  open-farm  system  and  the 


1 

222  DELINQUENT  CHILDREN 

system  of  grades  or  credits  and  demerits. 
The  placing-out  system  is  also  spoken  of  as 
in  considerable  use  with  excellent  results,  in 
the  report  of  1869. 


The  rapid  multiplication  of  juvenile  reform- 
atories after  1850  precludes  further  mention 
of  individual  institutions ;  it  will  be  noted, 
however,  that  a  much  larger  proportion  of 
institutions  for  wayward  children  are  public, 
The  ten-  i^e,  under  state  or  municipal  control,  than 
foward  institutions  for  destitute  children.  The 

state  con-  majority  are  strictly  state  institutions,  though 
^'^^^^  there  are  a  few  municipal  institutions  of  this 
nature,  nearly  all  of  which  were  established 
prior  to  1875.  Even  in  states  in  which  the 
contract  or  subsidy  system  prevails  for  the 
care  of  destitute  children,  the  juvenile  reform- 
atories are  usually  under  public  control.  The 
general  tendency  is  indicated  by  the  con- 
version in  1899  of  the  Maine  industrial  school 
for  girls,  which  hitherto  had  been  a  private 
institution  receiving  state  aid,  into  a  state 
institution  with  a  board  of  trustees  appointed 
by  the  governor.  There  are  a  few  reform- 
atories under  private  control  and  supported 
by  private  funds,  such  as  the  Berkshire  in- 
dustrial school,  located  at  Canaan  Four 
Corners,  N.Y.,  and  others.    There  are  also 


LIST  OF  JUVENILE  REFORMATORIES  22$ 


numerous  convents  under  the  charge  of  re- 
ligious sisterhoods,  for  the  reformation  of 
young  women,  several  of  which  also  receive 
girls. 

A  list  of  juvenile  reformatory  institutions 
in  the  United  States  is  given  in  the  United 
States  census  of  1890.  A  list  is  also 
given  in  a  paper  by  Mr.  T.  J.  Charlton,  con- 
tributed to  "  The  reformatory  system  in  the 
United  States,"  prepared  for  the  international  List  of 
prison  commission  by  Hon.  S.  J.  Barrows,  i^vemie 

.  formato: 

and  published  as  a  state  document  m  1900.  institu- 
From  these  lists  and  other  sources  the  fol-  tions. 
lowing  list  has  been  compiled.  Institutions 
established  primarily  for  adults,  or  which  re- 
ceive also  a  large  proportion  of  destitute 
children,  are  not  included. 


1824  House  of  refuge,  New  York  city. 

1826  House  of  reformation,  Bostpn. 

1828  House  of  refuge,  Philadelphia. 

1845  Boys'  house  of  refuge,  New  Orleans. 

1847  Lyman  school  for  boys,  Westboro,  Mass. 

1849  State  industrial  school,  Rochester. 

1849  House  of  refuge  for  boys,  Baltimore. 

1850  House  of  refuge,  Cincinnati. 

185 1  Reform  school,  Morganza,  Pa. 

1853  State  reform  school,  Portland,  Me. 

1854  State  reform  school  for  boys,  West  Meriden,  Ct. 
1854  House  of  refuge,  St.  Louis. 

1856  State  reform  school,  Lansing,  Mich. 


224 


DELINQUENT  CHILDREN 


1856  Boys'  industrial  school  (formerly  called  "  the 
reform  farm"),  Lancaster.  Ohio. 

185S  State  industrial  school.  Manchester.  X.H. 

185S  State  industrial  school  for  girls.  Lancaster, 
Mass. 

1S60  State  industrial  school  for  boys,  Waukesha, 
Wis. 

1S64  State  reform  school.  Jamesburgh,  X.J. 

1564  The  house  of  the  good  shepherd.  Baltimore. 

1565  Industrial  school  of  reform.  Louisville. 
1866  Reform  school  for  boys,  Plainfield.  Ind. 

1 866  Reform  school.  Vergennes,  Vt. 

1S67  Industrial  school  for  boys.  Eldora.  Iowa. 

1867  Female  house  of  refuge.  Baltimore. 

1 868  St.  Mary's  industrial  school  for  boys,  Car- 
roll. Md. 

1S69  Reform  school.  Washington. 

1869  Girls'  industrial  school.  Delaware.  Ohio. 

1869  Industrial  school  for  girls.  Mitchelville.  Iowa. 

1870  Industrial  school  for  girls.  Middletown,  Ct. 
1870  House  of  reformation  for  colored  boys,  Chel- 
tenham. I\Id. 

1870  Plummer  farm  school.  Salem.  Mass. 

1 871  State  industrial  school  for  girls.  Trenton. 

1 87 1  Reform  school  for  girls  and  women's  prison, 
Indianapolis. 

1873  Newark  city  home.  Verona,  N.J. 

1874  Industrial  school  for  girls.  Hallowell.  Me. 

1875  Industrial  school  for  girls.  Milwaukee. 

1878  State  industrial  school  for  girls.  Adrian.  Mich. 

1878  State  reform  school.  Red  Wing.  Minn. 

18S0  State  industrial  school.  Golden,  Col. 

1880  State  reform  school,  Topeka. 

1880  State  industrial  school.  Kearney.  Neb. 


LIST  OF  JUVENILE  REFORMATORIES  22$ 


1882  Oaklawn  school  for  girls,  Howard,  R.I. 

1882  Industrial  home  for  colored  girls,  Melvale, 
Md. 

1883  Sockannosset  school  for  boys,  Howard,  R.I. 

1885  Ferris  industrial  school,  Wilmington,  Del. 

1886  Berkshire  industrial  farm,  Canaan  Four  Cor- 
ners, N.Y. 

1886  State  reform  school,  Nashville. 

1888  Reform  school  for  boys,  Boonville,  Mo. 

1 888  State  industrial  school  for  girls,  Chillicothe,  Mo. 

1888  State  industrial  school  for  girls,  Beloit,  Kas. 

1888  State  reform  school,  Plankinton,  S.D. 

1889  State  industrial  school,  Ogden,  Utah. 

1890  State  reform  school,  Pontiac,  111. 

1890  Laurel  industrial  school.  School  P.  O.,  Va. 

1890  Girls'  industrial  school,  Geneva,  Neb. 

1890  Whittier  state  school,  Whittier,  Cal. 

1 89 1  State  reform  school,  Chehalis,  Wash. 

1 89 1  State  reform  school,  Turner,  Ore. 

1892  State  home  for  juvenile  offenders,  Geneva,  111. 
1892  The  house  of  the  good  shepherd  for  colored 

girls,  Baltimore. 

1892  Preston  school  of  industry.  Waterman,  Cal. 

1893  Reform  school  for  girls,  Washington. 

1894  Delaware  industrial  school  for  girls,  Wilming- 
ton, Del. 

1894  Montana  state  reform  school,  Miles  City,  Mont. 

1895  State  industrial  school  for  girls,  Montclair,  Col. 
1897  Virginia  manual  labor  school,  Hanover,  Va. 
1897  Industrial  home  for  girls,  Salem,  W.  Va. 

1899  Industrial  school  for  white  boys,  East  Lake, 
Ala. 

1900  State  reformatory  for  boys  (white  and  colored), 
Marianna,  Fla. 

Q 


226  DELINQUENT  CHILDREN 


Evolution 
of  the  titles 
ofreforma- 
tory  insti- 
tutions. 


1900  State  reformatory  for  girls  (white  and  colored), 
Marianna,  Fla. 

1 90 1  State  home  for  delinquent  boys,  Illinois. ^ 
Territorial  reform  school,  Arizona.^ 
Reform  school  for  boys,  New  Mexico.^ 
State  training  school  for  girls,  Red  Wing, 


1901 
1901 
1901 
Minn. 


Several  general  tendencies  in  juvenile  re- 
formatory work  are  obvious.  It  is  interest- 
ing to  notice  the  various  names  by  which 
reformatory  institutions  have  been  known  at 
different  periods.  At  first  they  were  houses 
of  refuge.  Then  it  was  sought  to  emphasize 
the  object  of  the  institutions  by  calling  them 
reform  schools.  In  course  of  time  this  name 
came  to  haver  its  disadvantages.  To  have 
come  from  a  reform  school  was  not  a  good 
recommendation;  in  fact,  it  was  a  distinct 
handicap  to  the  discharged  pupils.  To  es- 
cape from  this,  and  also  to  emphasize  the 
industrial  features,  the  name  industrial  school 
was  taken  up.  As  this  came  to  be  more  and 
more  generally  used,  it  came  to  have  some  of 
the  disadvantages  of  reform  school,*'  and  it 
also  had  an  unfortunate  effect  upon  industrial 
schools  that  were  not  reformatory  in  purpose. 
Probably  the  best  solution  is  that  of  giving 
the  school  the  name  of  some  person  or  place. 


1  Established  by  legislature  of  1901 ;  site  not  yet  selected. 


TENDENCIES 


227 


This  neither  creates  a  false  impression,  nor 
makes  prominent  the  reformatory  feature. 
The  Michigan  institution  has  been  named 
by  statute  successively,  "house  of  correction," 
state  reform  school,"  and  industrial  school 
for  boys." 

The  importance  of  employment  as  a  means 
of  preventing  deterioration,  and  as  a  positive 
reformatory  agency,  was  early  recognized. 
At  first  the  industries  were  extremely  simple.  Employ- 
In  some  cases  the  labor  of  the  inmates  was  ^^^^ 
farmed  out  to  contractors  by  the  hour,  or  by  ^sihov  or  at 
the  piece.    This  gradually  gave  way  to  manu-  manufac- 
facturing  industries  carried  on  in  the  institu-  ^^^^^ 
tion  under  the  direction  of  its  own  officers,  theinstitu- 
and  for  the  production  of  articles  for  con-  tions 
sumption  in  the  institution,  or  for  the  market. 
This  in  turn,  in  the  best  institutions,  has  been 
replaced  by  the  introduction  of  industries  for 
the  purposes  of  instruction  rather  than  of 
revenue.     Those  industries   that  are  most  gives 
useful  in  producing  revenue  are  apt  to  be  P^^^^ 

1  r  t   '      n    *  1         r  -tit  industries 

less  useful  m  nttmg  a  boy  for  outside  life,  p^^. 
Some,  notably  chair-caning  and  brush-mak-  poses  of  in- 
ing,  came  to  be  known  in  the  industrial  world  s^^^^^^^^- 
as  "  institution  "  industries.    For  this  reason, 
among  others,  in  his  report  in  the  national 
conference  of   charities   and   correction  of 
1890,  Mr.  T.  J.  Charlton  said  of  chair-caning, 


228  DELINQUENT  CHILDREN 


The  cot- 
tage plan, 


open 
grounds, 


and  educa- 
tion, not 
repression, 
the  mod- 
ern ten- 
dency. 


—  "I  must  confess  that  I  dislike  this  industry 
more  than  any  other  that  has  been  mentioned 
in  this  report/'  There  is  also  an  excellent 
paper  on  the  same  subject  by  the  same  writer 
in  the  conference  proceedings  of  1897.  The 
best  reformatories  are  industrial  schools  in 
fact  as  well  as  in  name. 

In  the  construction  of  buildings,  the  cottage 
plan  is  clearly  preferred.  Though  congre- 
gate institutions  still  are  built,  they  find  no 
defenders,  except  on  grounds  of  economy. 
Discipline  has  more  and  more  relaxed  in 
severity.  Bolts,  bars,  and  high  walls  are 
rapidly  becoming  things  of  the  past.  In 
1898,  of  forty-three  reformatories  reported 
upon  at  the  national  conference  of  charities 
and  correction,  thirteen  were  classed  as 
walled  "  and  thirty  as  "  open  "  institutions. 
Though  the  terms  were  not  very  clearly  de- 
fined, these  figures  undoubtedly  fairly  repre- 
sent the  preponderant  sentiment  in  favor  of 
the  open  system.  More  and  more  the  prob- 
lem is  seen  to  be  primarily  one  of  education, 
not  of  repression,  or  even  of  reformation,  as 
that  term  is  ordinarily  used.  The  evil  ten- 
dencies are  to  be  attacked  indirectly  by  the  in- 
troduction of  new  interests,  new  ambitions, 
and  new  powers. 

One  of  the  most  striking  evidences  of  in- 


PROBATION 


229 


creasing  discrimination  and  of  more  careful 
classification  in  the  treatment  of  juvenile 
delinquents  is  the  rapid  extension  during 
the  three  years,  1899       1901  inclusive,  of  Reforma- 
the  probation  system.    This  system  involves,  ^^^^ 
either  in  terms  or  in  effect,  a  suspension  of  institu- 
sentence,  the  child  being  permitted  to  return  tionai  con- 
to  his  own  home,  there  to  remain  under  the  ^j^^"^^^^ ' 
oversight  of  a  probation  officer,  and  subject  bation° 
to  further  court  proceedings  in  case  of  mis-  system, 
conduct.    The  probation  officer  is  expected 
to  keep  informed  of  the  child's  conduct,  to 
aid  him  if  necessary  in  securing  and  keeping 
employment,  and  to  act  in  general  as  adviser, 
friend,  and  protector.    Probation  thus  com- 
bines the  giving  of  "one  more  chance''  to 
the  boy  who  has  faced  the  prospect  of  being 
deprived  of  his  liberty,  the  holding  over  him 
of  the  continuing  possibility  of  punishment 
for  deeds  already  done  if  his  conduct  fails  to 
be  exemplary,  and,  most  important  of  all,  the 
advice,  encouragement,  and  assistance  of  a 
presumably  experienced,  wise,  and  discreet 
friend. 

Probation  work  was  one  of  the  prominent 
features  of  the  state  visiting  agency  estab- 
lished in  Massachusetts  in  1869.  It  probably 
had  been  in  operation  to  a  limited  extent 
prior  to  that  date,  the  children  being  placed 


230  DELINQUENT  CHILDREN 


The  sys- 
tem in 
Massachu- 
setts since 
1869. 


Results  of 
the  first 
year's 
work. 


under  the  care  of  benevolent  individuals  will- 
ing to  assume  the  responsibility.  With  the 
establishment  of  the  state  visiting  agency, 
having  a  representative  in  court  at  the  trial 
of  all  juvenile  offenders,  there  came  both  the 
opportunity  of  systematically  urging  that 
juvenile  offenders  be  placed  on  probation  in 
suitable  instances,  and  of  placing  them  under 
the  oversight  of  an  organized  department 
with  salaried  officers.  The  matter  is  consid- 
ered quite  fully  in  the  first  and  second  annual 
reports  of  the  state  visiting  agent,  included 
in  the  seventh  and  eighth  annual  reports  of 
the  board  of  state  charities  of  Massachusetts, 
1869-70  and  1870-71.  From  1870  to  the 
present  a  table  showing  the  total  number  of 
trials  of  the  juvenile  offenders  in  the  state, 
and  the  disposition  made  of  them,  appears 
in  the  reports  of  the  state  board  of  charity. 
During  the  first  fifteen  months  of  the  exist- 
ence of  the  agency,  of  the  799  juveniles  tried, 
189,  or  twenty-three  per  cent,  were  placed  on 
probation.  During  the  following  year,  of 
1463  cases,  456,  or  thirty-one  per  cent,  were 
placed  on  probation.  The  report  of  the 
agency  for  that  year  states  that  the  magis- 
trates were  placing  increased  numbers  on 
probation,  being  aware  that  the  future  well- 
being  of  such  children  would  be  promoted,  if 


PROBATION  231 

not  secured,  by  the  subsequent  action  of  the 
agency  in  visiting  and  guiding  them,  and 
surrounding  them  with  more  healthful  influ- 
ences than  they  had  previously  enjoyed.  As 
an  influence  for  restraining  and  reforming 
our  probationers  we  have  called  to  our  aid 
various  religious  and  benevolent  organizations, 
both  catholic  and  protestant/'  Only  thirty- 
nine  of  the  456  placed  on  probation  came 
again  before  the  courts,  or  became  obnoxious 
to  the  officers  of  the  law  during  the  year. 

The  percentage  of  juvenile  offenders  placed 
on  probation  has  varied  from  nineteen  to  Percent- 
thirty-three  per  cent.   The  figures  for  various 

-  offenders 

years  are  as  follows :  placed  on 

Number     Percentage  ,  . 

Total     placed  on     placed  on  * 
cases     probation  probation 


.   ,    .  799 

189 

23 

I87I  ,  .  .  .  . 

.    .    .  1463 

456 

31 

1875  

.    .    .  2775 

542 

19 

I88I  

.    .    .  1178 

344 

29 

1885  

606 

33 

500 

20 

1895  

.    .    .  3105 

791 

25 

.    .    •  3750 

709 

19 

When  the  visiting  agency  was  abolished  in 
1879,  its  probation  work  along  with  its  other 
work*  was  transferred  to  the  state  board  of 
health,  lunacy,  and  charity;  but  from  that 
date  or  shortly  thereafter,  the  agents  of  the 


232  DELINQUENT  CHILDREN 


Develop- 
ment of  the 
system. 


Court 
probation 
officers 
made 
manda- 
tory, 1 89 1. 


state  board  have  acted  as  advisers  of  the 
judges  in  the  disposition  of  juvenile  offend- 
ers, in  some  cases  giving  nominal  surety,  but 
have  not  undertaken  personal  visitation  and 
oversight  of  children  during  a  probationary 
period.  Subsequently  local  probation  officers, 
representing  the  courts,  were  appointed.  In 
1878  the  first  law  was  passed  requiring  the  ap- 
pointment of  a  probation  officer  for  the  city 
of  Boston.  In  1880  a  law  was  passed  for  the 
whole  state  authorizing  the  aldermen  of  each 
city,  and  the  selectmen  of  each  town,  to  es- 
tablish the  office  of  probation  officer;  this 
law  was  permissive  only,  and  little  was  ac- 
complished under  it  In  1891,  largely  as  the 
result  of  the  efforts  of  the  secretary  of  the 
prison  commission,  a  law  was  enacted  requir- 
ing the  criminal  courts  throughout  the  com- 
monwealth to  appoint  such  officers,  and 
defining  their  powers  and  duties.  These 
local  probation  officers  act  for  both  juveniles 
and  adults. ,  In  Boston  one  or  more  private 
societies  also  appointed  agents  to  attend  the 
trial  of  juvenile  offenders,  and  in  suitable  in- 
stances to  offer  to  exercise  an  oversight  over 
juvenile  offenders  whose  cases  were  continued 
for  definite  periods,  such  agents  giving  nominal 
surety.  The  effect  of  this  is  to  put  the  children 
on  probation,  their  cases  being  placed  perma- 


PROBATION 


nently  on  file  or  otherwise  disposed  of  at  the 
end  of  such  periods.  The  Boston  children's 
aid  society  has  employed  such  an  agent  since 
February  i,  1889. 

The  value  of  probation  work  in  Massachu- 
setts was  admitted,  but,  while  without  doubt 
in  many  places  and  on  many  occasions  wise 
judges  have  given  convicted  boys  another 
chance  "  and  have  asked  discreet  friends  to 
"look  out  for''  those  so  favored,  the  system 
did  not  secure  formal  adoption,  so  far  as  we 
are  aware,  in  any  other  state  until  the  enact- 
ment of  the  juvenile  court  law  in  Illinois  in  uiinois 
1899.  This  law  authorized  the  appointment  adopts  the 
of  probation  officers  and  the  commitment  ^^^gg^ 
of  children  to  their  care.  Several  different 
charitable  societies  assigned  one  or  more  of 
their  salaried  officials  to  the  juvenile  court  in 
Chicago  as  probation  officers.  A  number  of 
police  officers  also  were  assigned  to  this  work, 
serving  in  citizens'  clothing.  The  city  was 
districted  and  one  district  assigned  to  each 
probation  officer.  The  Chicago  juvenile  court 
with  its  probation  system  attracted  attention 
and  study  from  many  quarters.  The  Illinois 
children's  home  and  aid  society  was  largely 
instrumental  in  securing  the  legislation,  and 
the  children's  home  societies  of  many  other 
states  urged  the  passage  of  similar  laws,  in 


234  DELINQUENT  CHILDREN 


Probation 
now  recog- 
nized in 
fifteen  of 
the  largest 
cities  of 
the  coun- 
try. 


Rhode 
Island. 


Minne- 
sota. 


several  instances  successfully.  The  visitation 
and  aid  society,  a  Roman  catholic  society  for 
placing  children  in  families,  devoted  its 
monthly  periodical,  the  Juvenile  Record^  to  an 
account  of  the  operations  of  the  juvenile 
court,  and  advocated  the  establishment  of  a 
similar  court  in  every  state  in  the  union. 

At  this  time  (1901)  the  probation  sys- 
tem is  in  actual  operation,  or  is  provided 
for  by  statute,  in  fifteen  of  the  twenty-five 
largest  cities  of  the  United  States.  Rhode 
Island  in  1899  empowered  the  state  board 
of  charities  to  appoint  a  person  to  act  as 
probation  officer  throughout  the  state,  and 
in  its  discretion  to  appoint  additional  such 
officers,  of  whom  at  least  one  must  be  a 
woman.  Courts  were  authorized  to  commit 
juvenile  or  adult  offenders  to  their  care. 
Three  such  agents  were  appointed  during 
1900.  One  hundred  and  ninety  boys  be- 
tween ten  and  sixteen  years  of  age  were 
committed  to  one  of  these  officers,  of  whom 
only  twenty  were  returned  to  the  court  dur- 
ing the  year.  Another  agent  looks  after 
the  adult  males ;  the  third  cares  for  women 
and  girls.  The  probation  system  was  adopted 
in  1899  in  Minnesota  for  the  three  counties 
having  more  than  50,000  inhabitants,  the  offi- 
cers being  nominated  by  the  state  board  of 


PROBATION 


charities  and  confirmed  by  the  judges  of  the 
district  court  of  the  county  and  receiving  a 
salary  from  the  county  treasuries.  In  1900 
a  permissive  probation  law  was  enacted  in 
New  Jersey,  under  which  a  probation  officer  New 
was  appointed  in  Hudson  county  (Jersey  Jersey. 
City)  on  June  i,  1900.  His  first  annual  re- 
port showed  that  121  persons,  of  whom 
seventy-two  were  boys  and  three  girls,  had 
been  committed  to  his  care.  Of  the  seventy- 
two  boys  only  four  violated  their  parole  dur- 
ing the  year.  The  law  w^as  also  carried  into 
effect  in  Essex  county,  and  perhaps  else- 
where. In  1 90 1  the  probation  system  was 
adopted,  as  a  part  of  the  juvenile  court  law, 
in  Pennsylvania,  Kansas,  and  Wisconsin. 
The  Pennsylvania  law  applies  to  the  entire  other 
state,  is  mandatory,  and  has  already  been  states, 
put  in  operation  in  Philadelphia;  the  Kan- 
sas law  is  permissive ;  the  Wisconsin  law 
applies  only  to  the  one  county  (Milwaukee) 
having  a  population  of  more  than  150,000, 
and,  while  mandatory  as  to  requiring  a  sepa- 
rate court,  is  permissive  as  to  the  appoint- 
ment of  probation  officers.  Special  laws  for 
probation  work  were  secured  in  1901  for  the 
cities  of  Washington  and  Buffalo.  In  Wash- 
ington the  board  of  children's  guardians  des- 
ignates one  of  its  employees  as  a  probation 


236  DELINQUENT  CHILDREN 


officer;  in  Buffalo  the  officers  are  unpaid. 
In  New  York  a  general  law  took  effect  Sep- 
NewYork.  tember  i,  1901,  providing  for  the  appoint- 
ment of  probation  officers  throughout  the 
state,  but  the  law  is  made  inappUcable  to 
children  under  sixteen,  except  in  the  city  of 
Buffalo.  Missouri  passed  a  carefully  pre- 
pared probation  law,  applicable  only  to  the 
city  of  St.  Louis,  in  190L 

An  important  step  in  securing  better  classi- 
fication and  vdsQT  discrimination  in  dealing 
with  neglected  and  deUnquent  children  has 
Children's  been  the  establishment  of  separate  courts  to 
co-jrts,  to    ^Q^Y  exclusively  with  children's  cases.  This 

Gissociate  ^  .     .  ^ 

children  Only  prevents  the  actual  association  of 

from  adult  children  with  adult  offenders,  but  also  makes 
offenaers,    pQ^si^ig  ^  niuch  more  satisfactory  system  of 

ana  sys-  ^ 

tematize  records,  helps  to  bring  about  a  reasonable 
their  treat-  degree  of  Uniformity  in  dealing  with  chil- 
dren, and  promotes  cooperation  betAveen  the 
various  agencies  for  assisting  children.  In 
1869  the  ^lassachusetts  statute  establishing 
the  state  \isiting  agency  required  that  chil- 
dren's cases  should  be  ''heard  and  determined, 
by  themselves,  separate  from  the  general  and 
ordinary  criminal  business  of  said  courts." 
Similar  legislation,  but  permissive  in  form,  was 
enacted  in  New  York  in  1892,  in  Pennsyl- 
vania in  1893,  and  in  Rhode  Island  in  1898. 


CHILDREN'S  COURTS  237 

It  remained  for  Illinois,  however,  to  estab- 
lish the  first  court  devoted  exclusively  to 
children's  cases  and  held  entirely  apart  from  Illinois  es- 
courts  dealing  with  adults.    This  was  estab-  ^^biishes 
lished  in  Chicago  under  the  provisions  of  the  exclusively 

juvenile  court  law  of  1899.^  children's 

court, 

1  The  number  of  children  tried  before  the  juvenile  court  ^^99> 
during  the  year  ending  June  30,  1901,  was  2378,  as  fol- 
lows : 

Dependent  boys  543 

Dependent  girls  528 

Total  dependents   1071 

Delinquent  boys  1075 

Delinquent  girls  129 

Total  delinquents   1204 

Discharged  as  neither  dependent  nor 

delinquent  103 

2378 

The  disposition  made  of  the  dependent  children  was  as 
follows : 

Committed  to  training  schools  and  other  insti- 
tutions  517 

Committed  to  societies  for  placing  children  in 
families  86 

Committed  to  Illinois  humane  society  ...  19 

Committed  to  societies  and  individuals  for 
adoption   4 

Returned  to  parents  under  care  of  probation 
officers  445 

1071 

The  disposition  made  of  the  delinquent  children  was  as 
follows : 


238  DELINQUENT  CHILDREN 


A  similar  law  was  enacted  in  Pennsyl- 
vania in  1 90 1,  a  juvenile  court  being  opened 
and  is       in  Philadelphia  in  July  of  that  year.    A  law 
by^other         ^9^^  requires  a  separate  children's  court 
states.       in  Milwaukee.    The  revised  charter  of  New 
York  city,  taking  effect  January  i,  1902,  pro- 
vides a  separate  court  for  such  of  the  chil- 
dren's cases  as  are  now  heard  in  the  seven 
different  magistrates'  courts.    That  the  ex- 
ample of  these  large  cities  will  be  widely 
followed  can  hardly  be  doubted. 


Committed  to  John  Worthy  school  (the  city 
reformatory  for  boys  attached  to  the  house 

of  correction)   662 

Committed  to  other  institutions   99 

Held  to  the  grand  jury   12 

Released  in  care  of  probation  officers  .    .    .  431 

1204 

Of  the  delinquents,  in  addition  to  the  431  placed  on  pro- 
bation without  commitment,  658  were  placed  on  probation 
on  their  release  from  the  John  Worthy  school,  —  a  total  of 
1089  delinquents  placed  on  probation  during  the  year.  Of 
this  number  195,  ten  and  one  half  per  cent,  were  returned 
to  the  court  for  further  proceedings  during  the  year. 


CHAPTER  XII 


PRESENT  TENDENCIES 

The  experience  of  the  century  and  the 
increasing  study  given  to  child-saving  work 
during  the  past  twenty  years  might  naturally 
be  expected  to  result  in  more  or  less  clearly 
defined  tendencies  toward  the  wider  adoption 
of  some  methods,  and  the  modification  or 
rejection  of  others.  Through  the  free  compe- 
tition which  has  prevailed,  or,  if  that  phrase 
sounds  harsh  as  applied  to  charities,  through 
the  unrestricted  opportunity  for  each  system 
to  demonstrate  its  inherent  tendencies  and  to 
secure  its  natural  and  logical  results,  certain 
methods  should  by  this  time  have  shown 
their  fitness  to  survive.  Are  we  able  at  the 
opening  of  a  new  century  to  see  any  signs 
pointing  toward  the  general  adoption  of  cer- 
tain methods  ? 

As  to  governmental  agencies,  the  facts  are  of  public 
evident.    As  between  state  versus  county,  agencies, 
city,  and  town  systems,  the  state  plan  is  far  system  is 
in  the  lead.    No  new  states  are  establishing  in  the  lead 
a  series  of  local  or  county  homes  for  children. 
239 


240  PRESENT  TENDENCIES 


It  is  doubtful  whether  any  one  of  the  three 
states  that  have  county  children's  homes 
would  choose  this  plan  if  they  were  now  for 
the  first  time  establishing  their  system.  The 
increasing  effectiveness  of  state  supervision 
over  the  county  homes,  approximating  in 
some  cases  actual  control,  suggests  the  prob- 
ability of  state  management  in  the  not  distant 
future.  State  management  would  certainly 
be  followed,  sooner  or  later,  by  a  sharp 
reduction  in  the  number  of  the  institutions. 

The  real  contest,  if  such  it  may  be  called, 
will  be  between  the  state  and  the  contract  or 
The  con-    subsidy  systems.    To  put  it  plainly,  the  ques- 
testis       i-Jqj^  j^q^  being  decided  is  this,  —  shall  our 

between 

this  and  State  administrations  be  intrusted  with  the 
the  con-  management  of  a  system  for  the  care  and 
tem^  ^^^i^^^S  destitute  children,  or  is  it  wiser  to 
turn  that  branch  of  public  service  over  to  pri- 
vate charitable  corporations,  leaving  to  public 
officials  the  functions  of  paying  the  bills,  and 
of  exercising  such  supervision  over  the  work- 
ings of  the  plan  as  may  be  possible  ?  Each 
of  these  plans  finds  new  advocates  and  wider 
adoption  yearly.  Strongly  contrasted  in  spirit 
and  method,  and,  in  any  one  state,  almost 
mutually  exclusive,  it  seems  probable  that 
one  plan  or  the  other  will,  by  a  process  of 
gradual  selection,  gain  the  ascendency,  and 


STATE  VERSUS  CONTRACT  SYSTEMS    24 1 


become  distinctively,  though  probably  not  ex- 
clusively, the  American  system  of  public 
care  of  destitute  and  neglected  children. 
Which  it  shall  be,  only  the  twentieth  century 
can  tell.  Each  plan  is  yet  susceptible  of 
much  improvement,  each  has  powerful  advo- 
cates, and  each  has  behind  it  some  of  the 
most  influential  factors  in  American  social 
and  political  life. 

There  are  some  indications  that  in  the 
country  as  a  whole  the  state  system  will  gain 
in  favor  more  rapidly  than  any  other.  No 
state  that  has  adopted  it  has  abandoned  it;  Indica- 
nor  in  any  state  in  which  a  state  system  has 

the  state 

been  actually  established  has  there  been  any  system  will 
movement  in  favor  of  its  abandonment  or  prevail, 
serious  modification.     On  the  other  hand, 

'  exclu- 

the  contract  or  subsidy  system  seems  to  be  sively. 
as  a  rule  in  a  state  of  unstable  equilibrium. 
Opposed  as  it  undoubtedly  is  to  the  natural 
instincts  of  many  American  people,  and  con- 
taining in  itself  tendencies  to  an  undue 
growth,  which  inevitably  alarm  still  others 
who  are  not  opposed  to  it  from  principle,  it 
arouses  from  time  to  time  efforts  for  its 
better  regulation.  These,  if  successful,  natu- 
rally and  properly  strengthen  its  hold  on 
public  favor,  but  if  they  fail,  one  after 
another,  lead  to  a  demand,  which  in  more 


242 


PRESENT  TENDENCIES 


An  unsala- 
ried state 
executive 
board 
probable, 
to  deal  ex- 
clusively 
with  chil- 
dren's 
work,  by 
boarding 
out,  tem- 
porary in- 
stitutions, 
and  plac- 
ing out. 


than  one  case  has  prevailed,  for  its  abolition. 
There  is  little  reason  for  thinking  that  the 
contract  plan  will  ever  be  wholly  discon- 
tinued in  all  the  states,  but,  for  the  reasons 
above  stated,  it  seems  likely  that  it  will  not 
make  much  further  progress,  and  that  it  may 
be  discontinued  in  some  localities  in  which  it 
is  at  present  in  operation. 

As  to  the  form  which  the  state  systems  are 
likely  to  take,  there  undoubtedly  is  a  growing 
tendency  to  create  a  strong  central  state  un- 
salaried board  of  several  members,  having  to 
deal  only  with  children's  work;  to  vest  in 
this  body  the  custody  of  all  destitute  and 
neglected  children  in  the  state  who  are  public 
charges ;  and  to  leave  the  board  in  a  large 
measure  free  to  work  out  the  best  system 
for  caring  for  the  children,  through  tem- 
porary institutions,  boarding  out,  and  plac- 
ing out.  After  all,  the  essential  difference 
between  the  Massachusetts  state  system  and 
the  Michigan  plan  is  simply  that  for  the 
temporary  care  of  children  the  latter  uses  an 
institution,  while  the  former  uses  boarding 
out.  In  both  plans  the  placing  of  children 
in  free  permanent  homes  is  the  chief  feature. 
Already  there  are  evidences  that  the  Michi- 
gan, Minnesota,  and  other  similar  institutions 
are  finding  a  limitation  of  their  plan,  evidenced 


FUTURE  OF  THE  STATE  SYSTEM  243 


by  the  gradual  accumulation  of  children  who 
are  not  available  for  placing  in  free  homes, 
such  as  crippled,  unattractive,  slightly  dis- 
eased, and  other  cases.  These  must  either 
accumulate  in  the  institution,  as  seems  to  be 
the  case  in  Minnesota,  or  be  returned  to  coun- 
ties and  refused  admission  to  the  state  school, 
as  is  the  case  in  Michigan,  where  already  there 
is  a  movement  either  to  compel  the  state  school 
to  receive  such  cases  or  to  create  a  new  state 
institution  for  them.  Many  of  these  children  Children 
could  be  placed  in  families  at  board,  though 
not,  for  some  time  at  least,  in  free  homes,  placed  out 
For  this  reason,  and  also  because  as  commu-  may  be 
nities  grow  older  the  opportunities  for  placing 
children  who  are  too  old  for  legal  adoption 
seem  to  grow  less,  it  is  likely  that  the  state 
systems  will  gradually  find  it  desirable,  if  not 
necessary,  to  place  certain  of  their  children 
in  families  with  payment  for  board.  Whether 
the  state  schools  for  dependent  children  will 
follow  the  example  of  the  state  of  Massachu- 
setts and  the  city  of  Boston  in  doing  away 
with  the  temporary  institutions  altogether,  is 
doubtful. 

Several  tendencies  in  the  management  of 
private  charities  for  children  are   evident.  Private  in- 
The  older  orphan  asylums  are  in  some  cases  stitutions 
still  conducted  on  nearly  the  same  lines  as 


244  PRESENT  TENDENCIES 


ing  the 
value  of 
placing 
out  and 
boarding 
out. 


Cottage 
plan  pre- 
ferred to 
the  congre- 
gate. 


when  first  organized,  but  among  the  newer 
institutions  there  is  almost  a  general  accept- 
ance of  the  fact  that  orphans  and  children 
upon  whom  there  is  no  valid  parental  claim 
are  much  better  off  if  adopted  by  families, 
and  that  to  rear  them  in  asylums  until  they 
are  twelve,  fourteen,  or  sixteen  years  of  age 
is  an  expensive,  wholly  unnecessary,  and 
seriously  harmful,  blunder.  This  sentiment 
found  expression  in  the  unanimous  report  of 
the  committee  on  the  care  of  destitute  and 
neglected  children  to  the  national  conference 
of  charities  and  correction  in  1899.  The  very 
general  sentiment  in  favor  of  placing  chil- 
dren in  free  homes  in  families  is  likely  to 
lead  to  a  more  general  adoption  of  the 
boarding-out  plan  by  private  charities,  as 
the  limitations  of  the  plan  of  placing  out 
without  payment  for  board  are  more  clearly 
perceived,  and  as  such  limitations  become 
more  pronounced  as  communities  grow  older. 

In  the  institutional  care  of  all  classes  of 
children,  the  cottage  plan  has  clearly  proved 
its  superiority  to  the  congregate  system. 
Those  who  continue  to  erect  congregate  dor- 
mitories must  be  ready  to  apologize  for  them 
to  the  enlightened  sentiment  of  the  com- 
munity. 

The  general  movement  in  favor  of  indus- 


PRIVATE  CHARITIES 


245 


trial  education  leads  naturally  to  a  pronounced 
tendency  to  provide  trade  teaching  in  institu- 
tions, for  such  of  the  older  children  as,  for  rp^^^^ 
good  and  sufficient  reasons,  are  retained.    It  teaching 
is  now  seen,  however,  that  this  training  is  should  not 
simply  that  which  should  be  within  the  reach  tionalized, 
of  all  children,  and  that  it  can  be  offered  to  but  avail- 
children  living  at  home,  or  with  other  families,  ^!^!f /^^ 

^  children 

as  easily  as  to  those  livmg  in  mstitutions.  living  at 
We  are  not  likely  to  have  many  more  institu-  home, 
tions  founded  for  the  express  purpose  of 
teaching  trades,  which  make  residence  in  the 
institution  and  support  from  its  funds  a  neces- 
sary condition  for  receiving  such  instruction. 
Philanthropists  who  wish  to  further  the  cause 
of  industrial  education  are  more  likely  to 
follow  the  example  of  Pratt,  Drexel,  Armour, 
and  Auchmuty,  than  that  of  Girard  and  Will- 
iamson. Such  children  as  must  be  kept  in 
institutions  will  be  given  every  practicable  op- 
portunity for  industrial  training,  but  children 
will  not  be  gathered  into  institutions  for  the 
purpose  of  giving  them  such  training. 

As  to  the  division  of  the  field  between 
public  agencies  and  private  charities  not  re- 
ceiving public  aid,  little  change  is  noticeable.  Public 
except  an  increasing  tendency  to  regard  the  authorities 
public  authorities  as  the  appropriate  agencies  j^anTnt 
to  assume  the  care  of  children  who  are  to  be 


246  PRESENT  TENDENCIES 


charges; 
private 
charities, 
for  tem- 
porary as- 
sistance. 


The  need 
of  chari- 
table effort 
not  dimin- 
ishing. 


Public  sen- 
timent 
compels 
the  adop- 
tion of 
approved 
methods. 


permanently  separated  from  their  families,  and 
private  charities  as  more  particularly  fitted  to 
deal  with  those  cases  involving  temporary 
assistance,  or  the  care  of  children  for  whom 
some  payment  is  made  by  a  surviving  parent. 
Associated  charity,  individual  effort,  and  pri- 
vate funds  have  never  done  more  for  destitute 
children  than  at  present.  There  need  be  no 
fear  that  they  will  be  rendered  unnecessary 
by  the  development  of  a  state  system. 

Nor,  unfortunately,  does  there  seem  to  be 
any  reason  for  thinking  that  charities  for 
caring  for  destitute,  neglected,  and  delinquent 
children  will  soon  become  unnecessary.  We 
learn  to  deal  more  and  more  wisely  with  those 
who  are  in  distress,  but  the  forces  which  pro- 
duce poverty,  neglect,  and  crime  seem  to  be 
beyond  our  reach.  The  poor,  the  neglectful, 
and  the  vicious  we  shall  have  with  us  for  a 
long  time  to  come,  and  the  hearts  of  the  gen- 
erous will  continue  to  respond,  both  through 
individual  and  associate  charity,  and  through 
governmental  action.  There  is  ground  for 
rational  optimism,  however,  in  the  fact  that, 
more  and  more,  thought  is  added  to  kindliness, 
and  that,  as  surely  as  experience  and  study 
bring  fresh  truths  to  light,  so  surely  does  the 
intelligent  sentiment  of  the  community,  sooner 
or  later,  compel  their  adoption. 


INDEX 


Almshouse  care :  prevalent,  3 ; 
in  large  cities,  4  ff ;  in  coun- 
ties, 7 ;  12 ;  New  York,  13  ff ; 
Philadelphia,  23  ff ;  Boston, 
29  ff;  Massachusetts,  33  ff, 
157 ;  New  York  state,  37  f  ; 
condemned,  38  f  ;  removal 
from  almshouses,  see  chapter 
iv;  number  of  children  in 
almshouses,  80  f. 

Baltimore :  6 ;  10 ;  41 ;  Baltimore 
orphan  asylum,  49;  St. 
Mary's  orphan  asylum,  50; 
Watson  children's  aid  society, 
68 ;  house  of  refuge,  219. 

Bethesda  orphan  house.  Savan- 
nah, 9,  45. 

Binding  out,  see  indenture. 

Boarding  out :  6 ;  7 ;  21  ff;  24 ; 
63 ;  68 ;  70 ;  chapter  viii ;  242 ; 
244. 

Boston :  6 ;  10 ;  29  ff ;  house  of 
industry,  29;  children's  asy^ 
lum,  30;  house  of  reforma- 
tion, 29,  31,  207  ff;  Deer 
island,  31;  farm  school  so- 
ciety, 49 ;  boarding  out,  154  ff ; 
children's  aid  society,  69  f, 
182  ff. 

Boston  farm  school  society, 
49. 


Brace,  Charles  Loring,  66, 

California :  contract  system, 
131  ff ;  boys  and  girls'  aid  so- 
ciety, 186. 

Centralized  vs,  local  adminis- 
tion,  3,  239  f. 

Charleston  orphan  house,  7, 
32  f. 

Chicago:  private  institutions, 
193;  probation  system,  233; 
children's  court,  237. 

Children's  aid  societies:  65 ff; 
New  York,  66  ff,  182  ;  Balti- 
more, 68,  185;  Boston,  69  f, 
182  ff ;  Brooklyn,  71 ;  Buffalo, 
71;  Pennsylvania,  71,  140, 
184. 

Children's  courts :  Illinois,  165, 

237;  other  states,  236  ff. 
Children's  guardians,  boards 

of :  District  of  Columbia,  137 ; 

New  Jersey,  163  f;  Indiana, 

177. 

Children's  home  society,  185  f. 
Cincinnati  house  of  refuge,  218. 
Classification  of  children,  148  f, 
229. 

Colorado :  state  home,  92 ;  hu- 
mane society,  178. 
Colored  orphans,  59. 
Commitment,  methods  of:  11; 


247 


248 


INDEX 


17  f;  26;  29;  35;  62;  Michi- [ 
gan,  84, 95 ;  Connecticut,  107 ; 
New  York,  125,  129  f,  174  f; 
District  of  Columbia,  137; 
Massachusetts,  152  f,  158 ;  Illi- 
nois, 165 ;  neglected  children, 
171. 

Commitment  of  children  obvi- 
ated, 128. 

Connecticut:  removal  of  chil- 
dren from  almshouses,  78,  80 ; 
county  home  system ,  106  ff. 

Contract  care  of  paupers :  prev- 
alent, 3 ;  disuse,  13,  38. 

Contract  system  for  care  of 
children:  109;  chapter  vii; 
239  ff. 

Cottage  plan,  113,  216,  220  f, 
228,  244. 

County  children's  home  sys- 
tem :  chapter  vi ;  239  f. 

Cruelty,  societies  for  prevention 
of,  170,  172  ff. 

Delaware:  7;  subsidies,  141. 

DeHnquent  children:  chapter 
xi;  190. 

Disposal  of  asylum  inmates, 
64 ;  see  placing  out,  etc. 

District  of  Columbia:  subsidy 
system,  135  ff;  board  of  chil- 
dren's guardians,  137  f. 

Education,  compulsory,  effect 

on  institutions,  65. 
Endowed  asylums,  57  ff,  191. 

Family  vs,  institution  training, 
67,  244. 

Farming  out :  prevalent,  3 ;  dis- 
use, 13,  38. 


George  junior  republic,  190. 
Girard  college,  57  f. 

Heredity,  influence  of,  88. 
Humane  societies,  173. 

Illinois:  almshouse  care,  80; 
children's  law  of  1899,  165; 
children's  home  and  aid  so- 
ciety, 186 ;  probation  system, 
233 ;  children's  court,  237. 

Indenture  :  prevalent,  3,  8  ; 
New  York,  22;  Massachu- 
setts, 34  f  ;  visitation  of 
children,  see  this  title;  de- 
cadence of,  39  ff ;  46  f  ;  67. 

Indiana  :  41;  removal  of  chil- 
dren from  almshouses,  79; 
county  home  system,  109  f; 
children's  guardians,  177. 

Indian  children,  60,  118. 

Infants,  6,  21 ,  22  f,  24,  62  f. 

Institutions,  census  of  children 
in,  194  ff. 

Iowa,  state  home,  93. 

Kansas,  state  school,  91. 

Local  vs,  centralized  adminis- 
tration, 3,  38,  239. 

Maine,  subsidies,  141. 

Maintenance  combined  with 
education,  59. 

Maryland:  7;  8;  10;  40;  re- 
moval of  children  from  alms- 
houses, 78;  subsidy  system, 
139  f- 

Massachusetts:  8;  33 ff;  state 
primary  school,  34  f,  151  ff ; 


INDEX 


249 


State  visiting  agency,  34  f, 
151,  231 ;  indenture,  39 ;  re- 
moval of  children  from  alms- 
houses, 73  f,  83  ;  boarding- 
out  system,  150  ff,  242 ;  neg- 
lected children,  167,  169; 
Lyman  school,  214  ff;  pro- 
bation system,  229  fF. 

Michigan :  removal  of  children 
from  almshouses,  74  f ;  state 
school  system,  83  ff,  98,  242; 
neglected  children,  170  ; 
placing  out  restricted,  188. 

Milwaukee,  subsidy  experience, 
141  f. 

Minnesota:  state  school  sys- 
tem, 87  f,  99  f,  242;  placing 
out  restricted,  188 ;  probation 
system,  234. 

Missouri,  164,  166. 

Montana,  state  home,  92. 

Mothers  with  children  placed 
out,  189. 

Municipal  care  of  children  : 
Charleston,  7,  32 ;  New  York, 
13  ff ;  Philadelphia,  23  ff ; 
Boston,  29  ff;  vs.  state  care, 
239  f. 

Natchez  protestant  orphan  asy- 
lum, 50. 

Nebraska,  children's  institu- 
tion, 94. 

Neglected  children :  10 ;  chap- 
ters ix,  X. 

Nevada,  state  orphanage,  92. 

New  Hampshire:  removal  of 
children  from  almshouses, 
78;  state  supervision  of 
children,  143  f. 


New  Jersey :  removal  of  chil- 
dren from  almshouses,  79; 
board  of  children's  guardians, 
163  f;  reform  school,  220  f; 
probation  system,  235. 

New  Orleans:  9;  Poydras  or- 
phan asylum,  50;  house  of 
refuge,  213. 

New  York  catholic  protectory, 
63. 

New  York  city:  5f;  8;  9;  11; 
13  ff ;  Bellevue,  13  ff ;  Long 
Island  farms,  16  ff;  Ran- 
dall's island,  19  ff ;  Black- 
well's  island,  19 ;  foundlings, 
23 ;  indenture,  41 ;  orphan 
asylum  society,  45  ff ;  R.  C. 
orphan  asylum,  50;  juvenile 
asylum,  61;  catholic  pro- 
tectory, 63;  children's  aid 
society,  66,  182;  contract 
system,  118  ff;  foundling  hos- 
pital, 124 ;  society  for  preven- 
tion of  cruelty,  172  ff ;  house 
of  refuge,  199  ff. 

New  York  juvenile  asylum, 
61. 

New  York  orphan  asylum  so- 
ciety, 45  ff. 

New  York  state:  8;  35  ff;  re- 
moval of  children  from  alms- 
houses, 75  f ;  subsidy  system, 
116  ff ;  rules  of  state  board  of 
charities,  125 ;  neglected  chil- 
dren, 168  ff ;  house  of  refuge, 
Rochester,  217. 

North  Carolina,  subsidies,  141. 

Ohio :  removal  of  children  from 
almshouses,  73 ;  county  home 


250 


INDEX 


system,  103  ff ;  Lancaster  re- 
form school,  220. 

Oregon:  subsidy  system,  140; 
boys  and  girls'  aid  society,  186. 

Outdoor  relief :  prevalent,  3,  4 ; 
diminution,  12;  Boston,  29; 
condemned,  36  f. 

"  Pauper  "  stigma,  146. 

Pennsylvania:  7;  8;  removal 
of  children  from  almshouses, 
77  f ;  children's  aid  society, 
77,  159  f;  subsidies,  140, 159; 
boarding  out,  159  f;  western 
house  of  refuge,  218. 

Philadelphia:  4;  10;  23  ff; 
children's  asylum,  24  ff; 
Blockley  almshouse,  27  f; 
orphan  society,  50;  Girard 
college,  57;  boarding  out, 
160  f ;  house  of  refuge,  210  ff. 

Placing  out :  chapters  v  and  viii ; 
64  ff;  104;  107;  no;  119; 
123 ;  129 ;  143 ;  176 ;  182  ff ; 
restrictions  on,  187  f ;  moth- 
ers with  children,  189  f ;  193  ; 
244;  see  also  indenture  and 
boarding  out. 

Politics  in  institutions,  97  ff, 
14s  f. 

Poor  law,  English,  in  America,  3. 

Private  charities  for  children: 
chapters  iii,  ix,  x ;  8  ff ;  list  of 
private  charities,  52  ff ;  types 
of  institutions,  55  ff ;  tenden- 
cies, 243  f. 

*'  Private  "  defined,  12. 

Probation  system,  229  ff. 

Public  care  of  children :  chap- 
ters ii,  iv,  v-viii,  xi ;   3  ff ; 


Yates  report,  35  ff ;  state  sys- 
tems classified,  82;  see  also 
state  care  and  municipal  care, 
"  Public  "  defined,  12. 

Reformatories,  list  of  juvenile, 
223  ff. 

Relief :  systems  in  use  in  1801, 
3;  of  widows,  9;  outdoor 
relief,  see  this  title. 

Religious  institutions,  56  ff ; 
60  f;  120  ff;  141;  162;  182. 

Retention  in  institutions,  18; 
26;46;6^{',  120 ;  123 ;  see  also 
temporary  care. 

Return  of  children  to  parents, 
18,  26,  108. 

Rhode  Island :  removal  of  chil- 
dren from  almshouses,  78; 
state  school  system,  90,  100; 
probation  system,  234. 

Savannah,  9. 

Society  for  the  relief  of  poor 
widows  with  small  children, 
New  York,  9,  45. 

Soldiers*  orphans,  loi. 

State  care  of  children :  chapters 
ii,  iv,  V,  viii,  xi ;  Massachusetts, 
33  ff ;  New  York  Indians,  60 ; 
classification  of  state  systems, 
82 ;  delinquents,  222 ;  vs.  the 
contract  system,  239  ff. 

State  school  system,  chapter  v. 

States  without  systems  of  public 
care,  166. 

Subsidies  to  private  charities: 
47f;  62;  64;  77;  83;  91;  94; 
102;  chapter  vii;  159;  175; 
180 ;  239  ff ;  see  also  contract 
system. 


INDEX 


251 


Temporary  care  of  children,  63, 
70.  78,  95.  107. 17s.  180, 193, 
24s  f. 

Tendencies  in  the  care  of  chil- 
dren :  chapter  xii ;  delinquent 
children,  226  fF. 

Tennessee,  subsidies,  144. 

Texas  state  asylum,  93. 

Trade  teaching,  57,  92,  191  f, 
227  f,  245. 

Ursuline  convent,  New  Orleans, 
9. 


Virginia,  8. 

Visitation  of  placed-out  chil- 
dren :  Massachusetts,  34 ; 
Michigan,  84  f. 

Washington:  orphan  asylum, 
50 ;  see  also  District  of  Colum- 
bia. 

Wisconsin  :  removal  of  children 
from  almshouses,  77;  state 
school  system,  89,  100. 

Yates  report  on  public  care, 
35  ff. 


J 


